FITTERS’ WORKSHOP CONSERVATION MANAGEMENT PLAN
Prepared by Duncan Marshall, Keith Baker, Nicola Hayes (Navin Officer Heritage Consultants) and Brendan O’Keefe
for Daryl Jackson Alastair Swayn Architects on behalf of the ACT Department of Land and Property Services
2011
EXECUTIVE SUMMARY
This conservation management plan for the Fitters’ Workshop at Kingston provides a sound basis for the good management and conservation of this place and its heritage significance. This conservation management plan: • describes the historic building, surrounding area and related structures; • provides an overview of the history of the place; • offers evidence related to historic, aesthetic, scientific and social values; • analyses all of this evidence and provides a statement of significance for the place; • considers opportunities and constraints affecting the management of the complex; and • provides a conservation policy and implementation strategies to guide management and conservation.
The Workshop is part of the Kingston Powerhouse Historic Precinct which is entered on the ACT Heritage Register under the ACT Heritage Act 2004. This listing protects the heritage values of the place, and imposes a number of obligations including the need to prepare a conservation management plan.
The Fitters’ Workshop is located in the former industrial/engineering services area of Kingston between Wentworth Avenue and Lake Burley Griffin. The area contains a number of historic elements which reflect this former industrial/engineering use and character, notably the Kingston Power House and former Transport Depot. The Workshop dates from 1916 and is a large concrete building with a gabled tiled roof, and has an impressive single space within it. Notably the open area behind the building was the location for a number of other buildings which were related to the historical uses of the Fitters’ Workshop. This open area is not part of the registered Kingston Powerhouse Historic Precinct.
The heritage values of the Workshop relate to its architectural style, design and setting, as evidence of its historical use, and for its strong and special associations.
Some of these values make the Workshop of individual significance, and in other cases it contributes to the overall heritage values of the former industrial/engineering area of Kingston.
The conservation management plan considers a number of implications arising from this heritage significance, as well as a range of other legislative, management, physical and stakeholder issues. The range of constraints and opportunities have been used as the basis for the development of a set of conservation policies and implementation strategies including those related to: • training, consultation and liaison; • conservation of the building; • historical archaeological features; • landscape of the building; • the broader setting for the Workshop and relationships with other elements; • use of the place; • new development; and • interpretation.
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Key policies are provided related to: • conservation of the building fabric related to its architectural style, its impressive size, evidence of former engineering use, and its setting and planned relationship to the former Kingston Power House; • conservation of other historical features – the railway alignments/embankments either side of the Workshop, and the railway platform wall to the southwest of the Workshop; • adaptation of the Workshop, noting the current proposal to convert the building into a print studio; • the need for further historical archaeological assessment if development or works take place in the area southeast of the Workshop; • possible new buildings and otherwise the treatment of the landscape to the southeast of the Workshop; and • a number of maintenance and repair issues.
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CONTENTS
Page Number
Executive Summary ...... i
1. Introduction...... 1
1.1 Background and Project Objectives 1.2 Conduct of Project 1.3 Purpose of Report 1.4 Limitations 1.5 Consultant 1.6 Acknowledgments
2. Location, Boundaries, Description and Associated Places...... 4
2.1 Location and Boundaries 4 2.2 Description 6 2.3 Associated Places 17
3. Overview History ...... 20
4. Evidence of Other Values: Aesthetics, Creative and Technical Achievement, Scientific and Social ...... 37
4.1 Aesthetics, Creative and Technical Achievement 37 4.2 Scientific Value – Archaeological Potential 37 4.3 Social Value 43
5. Analysis of Evidence ...... 44
6. Statement of Significance ...... 51
6.1 Significance of the Fitters’ Workshop 51 6.2 Attributes Related to Significance 52
7. Development of Policy - Opportunities and Constraints...... 54
7.1 Implications arising from Significance 54 7.2 Legislative Requirements 54 7.3 Stakeholders 58 7.4 Management Context, Requirements and Aspirations 59 7.5 Condition and Integrity 60 7.6 Issues Related to the Broader Precinct 62
8. Conservation Policy and Implementation Strategies...... 64
8.1 Objective 8.2 Definitions
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8.3 Conservation Management Policy and Implementation Strategies
9. Bibliography ...... 78
Appendix A: Existing Heritage Citation ...... 85
Appendix B: Historical Description of Kingston Industrial/Engineering Precinct – 1928...... 92
Appendix C: Additional Historical Information ...... 93
Appendix D: Framework for Assessing Cultural Significance ...... 106
Appendix E: Priority Works ...... 108
Appendix F: Guidance for Assessing Proposals for Change ...... 109
Appendix G: Burra Charter...... 111
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1. INTRODUCTION
1.1 BACKGROUND AND PROJECT OBJECTIVES
The ACT Department of Land and Property Services (DLAPS) is undertaking a project to relocate the Megalo Print Studio in the Fitters’ Workshop building at Kingston. The design work is being undertaken by Daryl Jackson Alastair Swayn Architects.
The Fitters’ Workshop is part of the Kingston Powerhouse Historic Precinct which is entered on the ACT Heritage Register under the ACT Heritage Act 2004 (see Appendix A for a copy of the citation for the precinct). This listing protects the heritage values of the place, and imposes a number of obligations including the need to prepare a conservation management plan. While an existing 2001 plan exists for the precinct (Peter Freeman Pty Ltd 2001), this is not regarded as being adequate to guide the project involving the Fitters’ Workshop.
Accordingly, Daryl Jackson Alastair Swayn Architects on behalf of DLAPS has commissioned this conservation management plan for the Workshop.
1.2 CONDUCT OF PROJECT
General
The methodology adopted for this plan is in accordance with The Burra Charter - The Australia ICOMOS Charter for Places of Cultural Significance (Australia ICOMOS 2000). This can be summarised as a series of steps as shown in Figure 1 below.
Figure 1. Basic Steps of Conservation Management Planning Source: Australia ICOMOS 2000
Understand Significance Develop Policy Manage in accordance with Policy
The plan has also been structured to meet the requirements of ACT Heritage which are defined in the document ACT Government Agency Heritage Guide for Compliance with ACT Heritage Legislation (ACT Heritage nd).
The preparation of this conservation management plan has involved a range of consultations, research, inspections and analyses (Chapters 2 - 5). These provided a sound understanding of the place, and led to the preparation of a statement of significance. This work also provided an understanding of the constraints and opportunities related to the current and future management of the place. The statement of significance (Chapter 6) and the information about constraints and opportunities (Chapter 7) were used as the basis for
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developing a conservation policy and implementation strategies (Chapter 8).
As noted in the history, the building has had a number of names over its life. Throughout this report the building is referred to as the Fitters’ Workshop, being the current name.
To some extent, this plan has built upon the 2001 conservation management plan (Peter Freeman Pty Ltd 2001).
Historical Archaeology
A range of archaeological data was reviewed for the Fitters’ Workshop and its surrounds. This literature and data review was used to determine if known Aboriginal and historical archaeological sites were located within the area under investigation, to facilitate site prediction on the basis of known regional and local site patterns, and to place the area within an archaeological and heritage management context. The review of documentary sources included heritage registers and schedules, and archaeological reports.
Literature sources included the Heritage Registers and associated reports held by the ACT Heritage, and the ACT Department of Territory and Municipal Services (TaMS).
1.3 PURPOSE OF REPORT
The purpose of this report is to provide a conservation management plan for the Fitters’ Workshop consistent with the obligations under the ACT Heritage Act 2004, including an understanding of its heritage values (Chapter 6), and conservation policies and implementation strategies for its future management (Chapter 8).
1.4 LIMITATIONS
The following factors limited the work undertaken as part of preparing this plan: • the ground within and surrounding the Fitters’ Workshop site is currently sealed and thus inaccessible for visual inspection. The assessment of the archaeological sensitivity of the site has therefore been based on literature review (historical heritage) and comparative assessments of similar areas (Indigenous heritage); • no archaeological subsurface testing was undertaken to confirm if subsurface archaeological material is present at the site; • a number of aspects of the history of the building remain unclear, however it is not certain additional historical research will help resolve these matters; and • the social values of the Workshop as an individual place, and those of the surrounding precinct have not been subject to detailed research, including aspects related to design and aesthetic qualities.
This conservation management plan conforms with The Burra Charter (Australia ICOMOS 2000) and with the requirements of ACT Heritage, and there are no non- conforming aspects to note apart from the limitations above.
1.5 CONSULTANTS
The consultants for the project are Duncan Marshall, Keith Baker, Nicola Hayes (Navin Fitters’ Workshop Conservation Management Plan Page 2
Officer Heritage Consultants) and Brendan O’Keefe.
1.6 ACKNOWLEDGMENTS
The consultants wish to acknowledge the kind assistance of the following people and organisations.
Rod Baxter ACT Department of Land and Property Services Alastair Swayn Daryl Jackson Alastair Swayn Architects Jinny Kim Daryl Jackson Alastair Swayn Architects
ACT Heritage Library Australian Institute of Architects (ACT Chapter) Trevor Bennett ACTEW Alan Christie retired Assistant Chief Mechanical Engineer, Australian Construction Services Ernie Coot CHLE Pty Ltd Jennifer Dunn ACT Heritage Peter Freeman Peter Freeman Pty Ltd, conservation architects & planners David Hobbs Philip Leeson Architects Philip Leeson Philip Leeson Architects Grant Mainwaring ACTEW National Archives of Australia National Library of Australia Jennifer O’Connell ACT Heritage Graeme Trickett Australian Institute of Architects (ACT Chapter)
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2. LOCATION, BOUNDARIES, DESCRIPTION AND ASSOCIATED PLACES
2.1 LOCATION AND BOUNDARIES
The Fitters’ Workshop is located off Wentworth Avenue, Kingston, adjacent to the former Kingston Power House, now the Canberra Glassworks, and the former Kingston Transport Depot, now the Old Bus Depot Markets. It is located on Section 49, Kingston.
Note that in the following figures, buildings are shown to the southeast of the Workshop. These buildings have now been removed.
Figure 2. Location of the Fitters’ Workshop Source: Google Maps
Fitters Workshop
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Figure 3. Block and Section Plan for the Fitters’ Workshop Source: ACTmapi
Fitters Workshop
The boundary for this conservation management plan is the footprint of the Workshop building plus the immediate area on the northeast, northwest and southwest sides. The boundary on the southeast side extends 54 metres southeast of the building. The boundary excludes the Old Bus Depot Markets. This boundary is shown on the following figure.
Figure 4. Conservation Management Plan Boundary Source: Base image Google Earth
Fitters Workshop
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2.2 DESCRIPTION
The study area is focussed on the Fitters’ Workshop building but also includes open areas on all sides, especially a large area to the southeast which was the location for early buildings associated with the Workshop. This section begins with a brief description of the setting for the Workshop, being the area outside of the study area boundary. This is followed by a description of the building, and then a description of the remaining study area.
Setting for the Fitters’ Workshop
The current setting for the Fitters’ Workshop includes the Canberra Glassworks (the former Kingston Power House) to the northwest a large open carpark to the northeast, an open area leading to modern residential developments to the southeast, and the Old Bus Depot Markets (the former Kingston Transport Depot) to the southwest. West of the Workshop building is an open bitumen area/carpark/roadway, and forecourt landscaping for the Glassworks.
Figure 5. Forecourt area for the Canberra Glassworks Source: Duncan Marshall
Workshop Building
Exterior Northwest elevation – has a roughcast render wall, and is a largely symmetrical composition of large windows and one large door along the length of the elevation. The door has been widened at some stage. The elevation is modelled by insets around the door and windows, and a heavy cornice or string course over these elements. At each end of the elevation are bays created by pilasters, a break in the cornice punctuated by roundels, and a large window or door and fanlight above separated by a framed roughcast panel. The bays are given greater prominence by flanking bays of blank roughcast walls.
Note: In the following figure, the only existing door in the southeast wall (shown on the drawing as the east elevation) is the central vehicle door.
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Figure 6. Elevations Source: Daryl Jackson Alastair Swayn Architects
Figure 7. Northwest elevation Source: Duncan Marshall
Above the cornice are three large glass louvre windows with painted timber frames, centred on the elevation.
The wall displays the scars of former elements, including former downpipes, render patching and some cracking. Some of the cracking may have exposed reinforcing.
Modern painted metal gutters and downpipes have been fixed to the elevation.
Northeast elevation – has a roughcast render wall, is the gable end for the building, has a large timber door with large multi-pane windows either side and a fanlight over the door. The door has a concrete sill. The elevation is modelled by insets around the door and windows, and a heavy cornice or string course over these elements, with roundels integrated into the cornice to emphasise the doorway. Two modern electrical distribution boards have been mounted to one side of this elevation.
The roughcast on this elevation appears to have been re-applied/re-finished in recent times,
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including to the cornice and roundels which were originally a smooth render finish.
Figure 8. Northeast elevation Source: Duncan Marshall
Southeast elevation – this elevation appears unfinished compared to the other elevations. It clearly shows the mass concrete construction poured in layers and with boarded formwork joints showing. There is a large central timber door and large multi-paned windows either side. The doorway appears to have been widened at some stage, and large timber buffers have been installed at the lower levels of the door opening. The doorway and windows are framed by insets in the wall, and a continuous cornice over these elements. Above the cornice are three large glass louvre windows with painted timber frames. The remaining elevation has pilasters.
Figure 9. Southeast elevation Source: Duncan Marshall
This elevation has painted marks, scars and infilled doorways – two pedestrian doors and one vehicle door. There is a scar for a gabled roof flashing on the southwest end. Modern painted metal gutters and downpipes have been fixed to this elevation.
Southwest elevation – similar to northeast elevation. However, this elevation has a large central window instead of a doorway. The smooth finish of the render below and around the central window suggests it is not original, and that the window may originally have been a door. The cornice and roundels are smooth rendered in contrast to the roughcast for the walls. There is a little evidence the walls may have been painted, and the paintwork subsequently removed.
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Figure 10. Southwest elevation Source: Duncan Marshall
Roof – is a gabled unglazed terra cotta Marseille pattern tile roof. There are painted timber gables and exposed rafter ends, and the soffits are either painted panels to the gable ends or timber boards otherwise. The roof structure has metal trusses.
Interior The interior of the building is one large space with large doors in three walls, and large windows in all elevations – there being fewer in the southwest wall.
Note: In the following figures, the only existing door in the southeast wall is the central vehicle door.
Figure 11. Existing Floor Plan Source: Daryl Jackson Alastair Swayn Architects
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Figure 12. Internal Elevations Source: Daryl Jackson Alastair Swayn Architects
Figure 13. Interior looking northeast Source: Duncan Marshall
The floor is concrete and appears to be a non-original slab laid over the original floor. There are numerous cracks, perhaps from shrinkage and perhaps also reflecting the lack of any control joints. A few metal pipes and hollow section members extend to the surface of the slab along the southeast wall where they have been cut off flush, apparently reflecting some former use or feature. There are painted line markings, suggestive of a former use, as well as other paint markings.
The walls are bagged and painted concrete, and a thin painted dado line has been added. There are prominent corbels at a high level on the walls for the overhead travelling crane rails on the northwest and southeast walls. Above this at the ceiling level is another smaller set of corbels spaced to match those for the crane, and a plain cornice. There are a number of structural cracks in the walls.
The walls have a number of scars and cut-off metal elements indicating former structures and uses. In several cases, the scars indicate the location of former pedestrian or vehicle doors.
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Figure 14. North corner of the building – note highlighted steel C section embedded in wall and now cut off Source: Duncan Marshall
There are three large pairs of painted sliding timber doors in the building. The doors are ledge and brace construction with throw bolts which fix into the floor. Two of the doors also have smaller access doors as part of their construction. The pair of doors in the southeast wall has been modified with side wings to close the door opening which appears to have been widened at some stage.
Figure 15. Door in northwest elevation Source: Duncan Marshall
The windows are painted metal multi-pane windows. The main windows all have two top central panes which are awnings(?) however, these appear to have been fixed shut. Additional windows exist above the northeast door and southwest window – painted metal multi-pane half-circle fanlights, and above the northwest door and one main window in this elevation – again painted metal fanlights but with a shallow arched head.
At a high level and centrally in the northwest and southeast walls are painted panels covering former louvred openings.
The ceiling is painted hardboard with cover strips. There is a central flat section and sloping sections either side. Former light hanging/connection points are evident.
The large steel overhead travelling crane and rails are mounted close to the ceiling, and traverses northeast-southwest along the main length of the building.
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Machinery The interior of the Fitters’ Workshop has little remaining evidence of the original machinery which can be seen in the following photograph of the northeast end of the building taken some 13 years after its construction.
Figure 16. Interior of Fitters’ Workshop, 1928 Source: A3560, 4243, National Archives of Australia
In 1928 the machinery installed in the workshop consisted of six lathes, three drilling machines, one Universal milling machine, one Universal grinding machine, planing machine and shaping machine, and the usual assortment of hacksaws, emery wheels, etc (Institution of Engineers, Australia 1928, p. 128).
An overhead travelling crane is the only equipment that remains in place, although modified to incorporate an electric hoist motion. Flexible cable allows continuous electrical supply to the hoist motor during cross travel and insulated pickup rails allow long travel. The cable and hoist are relatively modern. The crane otherwise appears to be in original condition, with manual chain controlled long travel and cross travel. It is likely that its present load capacity has been down-rated to its present 2 tonnes.
Figure 17. Overhead travelling crane showing chain operated manual travel and added electric hoist and power connections, and access platform Source: Keith Baker 2010
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Although the crane in the Fitters’ Workshop is similar in principle and of similar age to the crane in the Canberra Glassworks (former Kingston Power House), its construction is different in detail, suggesting a different manufacturer. The crane in the Fitters’ Workshop is of the same vintage as that in the Canberra Glassworks, as evidenced by its manually operated travel and the bolted and riveted construction, compared with more modern cranes where welded construction and electric drives had become increasingly common in cranes built by the 1940s (personal communication, Ernie Coot, 2010 – Mr Coot is an authorised crane maintenance inspector with CHLE Pty Ltd, Fyshwick, who maintains the Canberra Glassworks crane).
Figure 18. End truck and bridge of overhead travelling crane is discernible on the crane rail above the line shaft in this segment of a deteriorated 1928 photograph in the Mildenhall Collection Source: A3560, 4382, National Archives of Australia
Also the existence of grease pots on the bearings indicates considerable age, unlike the grease nipples or sealed bearings that would be expected if the whole crane had been replaced at the time of the workshop extension to the southeast. Also there is clear evidence of the removal of the manual hoist chain wheel from the crane trolley, which would have become redundant when the electric hoist was fitted. There can be little doubt that this is the original crane which can be seen in the gloom of the 1920s photo above (personal communication, Alan Christie BE (M&E) FIEAust, 2010 – Mr Christie is the retired Assistant Chief Mechanical Engineer, Australian Construction Services, and worked at the Fitters’ Workshop as a cadet engineer in a trades assistant role in 1950-54, and with subsequent vast experience of mechanical engineering service in Canberra).
Figure 19. Detail of overhead travelling crane bridge and end truck showing bolted and riveted construction and grease pots on the long travel drive shaft bearing and on large gear bearing Source: Keith Baker 2010
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Figure 20. Overhead travelling crane bridge and trolley showing manual chain drive of trolley cross travel on the left and long travel on the right below the bridge. A manual hoist would have originally been chain driven from the opposite side of the trolley to the cross travel chain drive. Source: Keith Baker 2010
Figure 21. Overhead travelling crane trolley with bolted construction, grease pots above the trolley bearings and redundant brackets after removal of the manual hoist shaft and chain wheel Source: Keith Baker 2010
At the time of construction it was common practice for machinery in factories and workshops to be driven by one or more large motors powering overhead line shafts from which individual machines were belt driven. In Figures 16 and 18 above, an electric motor can be seen bracketed from the wall at mid height above the drilling machine in the right of the picture. That motor has a belt drive to the line shaft mounted on the wall above. Other machines such as the lathe between the drilling machine and the window are driven by a belt from the line shaft. The belt drive can be seen more clearly the following figure.
Figure 22. Lathe machining a crankshaft in the Fitters’ Workshop in the period 1921-31 Source: CRS A3560, item 312, National Archives of Australia
Although the walls have been rendered, evidence of the motor brackets can be seen as a steel I beam (or RSJ) cut off flush with the wall below the third corbel from the northeast end. Other steel channel section fixings can also be seen at the end of the opposite wall.
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Figure 23. Evidence of motor support bracket for the line shaft drive in the rendered wall Source: Keith Baker 2010
The crane rails are the most prominent part of the building structure since the roof trusses have been enclosed by a false ceiling. The detailed design drawing, an extract of which is shown below, illustrates the bolted I beam supported on reinforced concrete corbels. The riveted angle iron roof trusses were fixed to the top of the reinforced concrete walls by proprietary fasteners known as Lewis bolts. Interestingly the structural drawings were signed by the mechanical engineer, suggesting less specialisation in the profession than in later years.
Figure 24. Detail of original structural design drawing showing mounting of crane rail, 1915 Source: CRS A2445, item M297C, National Archives of Australia
Area surrounding the Building
Northwest area – an open gravel area.
Northeast area – an open gravel area with a concrete strip separating different coloured gravel. A section of stylised/interpreted railway line extends into this area.
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Southeast area – this is a flat open area with sections of gravel and bitumen, some unfinished.
Southwest area – is paved with concrete and bitumen, and is split between two levels divided by a low concrete wall – the former railway platform wall.
Figure 25. Area northeast of Workshop Source: Duncan Marshall
Figure 26. Area southeast of Workshop Source: Duncan Marshall
Figure 27. Area southwest of Workshop with former railway platform Source: Duncan Marshall
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2.3 ASSOCIATED PLACES
The Fitters’ Workshop is associated with a number of other existing places including: • the Canberra Glassworks (former Kingston Power House) with which it shares the same architect and architectural style, and the same historical development phase; • the Kingston Powerhouse Historic Precinct, being a large conservation area of which the Workshop is a component part; and • the Old Bus Depot Markets (former Kingston Transport Depot), being adjacent to the Workshop and one of the few surviving elements of the former Kingston industrial/ engineering area.
The Workshop also has a likely association with the drill press displayed in the foyer of the Canberra Glassworks as one of the machinery items formerly located in the Workshop.
By way of context, while the Fitters’ Workshop is adjacent to the former Kingston Power House, its function was wider than to support the operation of the Power House. It formed a key part of a wider industrial complex that enabled maintenance of government plant and equipment, and construction work that was largely undertaken by a day labour workforce. Appendix B gives an indication from 1928 of the extent of mechanical plant that was grouped in the area in what was described as the Factories and Repair Shops that were grouped at the Railhead, Eastlake. The Workshop, former Kingston Power House and former Kingston Transport Depot are the main surviving elements of this complex.
Figure 28. Aerial image showing location of Canberra Glassworks and Old Bus Depot Markets Source: Base image Google Earth
Canberra Glassworks – former Kingston Power House
Fitters Workshop
Old Bus Depot Markets – former Kingston Transport Depot
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Figure 29. The Canberra Glassworks – former Kingston Power House Source: Duncan Marshall
Figure 30. Plan of the Kingston Powerhouse Historic Precinct Source: ACT Heritage Register citation
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Figure 31. Old Bus Depot Markets – former Kingston Transport Depot Source: Duncan Marshall
Figure 32. Drill Press from the Fitters’ Workshop now located at the Canberra Glassworks Source: Duncan Marshall
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3. OVERVIEW HISTORY
Tracing the genesis of what is now known as the Fitters’ Workshop at Kingston has been a complicated process. The building has undergone various changes of name in its history and, on occasion, two or more names have been used for the building at the same time. On other occasions, the name has been applied to the Fitters’ Workshop and adjacent buildings, or has been given to a separate building entirely. Thus, it is often unclear in the records precisely what structure is meant when a name is used at a particular time. At least in part, too, the name changes reflected a recognition of the broader purposes that the building served, in comparison to a narrower range of functions that were originally conceived for it.
The matter was further clouded by the apparent absence of any file on the design and construction of the building, as well as by the lack of anything like a complete set of plans and architectural drawings for the structure – instead, only a very few partial plans and drawings appear to have survived. What follows below is an attempt to elucidate the evolution of the site and building from available documents, plans, drawings and photographs.
A ‘Temporary’ Building
The selection of Eastlake – later Kingston – as the site both of the Power House for the federal capital and of its initial industrial area originated with the Departmental Board. Following criticism of Walter Burley Griffin’s winning design for Canberra as being too extravagant and too expensive to consummate, the Minister for Home Affairs, King O’Malley, appointed the Board in 1912 to review all four prize-winning or commended plans for the national capital. Unable to endorse any of the plans, the Board members instead came up with a hybrid plan that they considered would be more suited to local conditions and cheaper to implement. For the time being, the government accepted the Departmental Board Plan as the basis for the design of Canberra.
In its plan dated 25 November 1912, the Board positioned the Power House on the southern bank of the Molonglo River southeast of the government group of buildings and at the terminus of a rail spur from Queanbeyan. Alongside the Power House, the plan showed an extensive collection of buildings labelled as ‘Power Plant and Workshops’. A little further away to the southeast, the plan included a line of storage buildings aligned along a small parallel loop of the rail spur (Reid 2002, pp. 93, 99 and 102).
Preliminary works for the construction of the Power House commenced in November 1912, while work on the building itself started the following January. No early start was made on any of the workshops. By mid-1913, however, the engineers responsible for establishing the Power House and Canberra’s electric power supply felt that the erection of the first of the stores buildings and workshops were needed as soon as possible. On 19 July 1913, Percy Owen, the Director-General of Works, put the case to the Secretary of the Department of Home Affairs:
‘The time has arrived when the Commonwealth should erect an Electrical Store Building and first section of Machine Shop at Canberra. The site proposed is near the Power House between the two railway sidings. The section now proposed would be 50 [feet] x 80 [feet], and so placed on the site as to admit of extension and incorporation with the permanent building.
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The Machine Tools which I propose would be such as are necessary for carrying out the primary electric supply and medium repairs on the class of machinery now in use at the Capital Site.
The estimated cost of the building, machine tools, and other plant is £1,600.
I am now preparing a scheme of the entire workshop premises with a view to additions being made to meet requirements from time to time, and if feasible, any permanent construction. The provision, however, of the first section cannot wait the time when bricks will be available for permanent construction.’ (Minute, Director-General of Works to Secretary, Department of Home Affairs, ‘Electrical Store Building and Workshop at Canberra’, 19 July 1913, Commonwealth Record Series [CRS] A199, item FCW1915/963)
Figure 33. Section of the 1912 Departmental Board Plan showing the planned Kingston industrial area Source: Detail from Reid 2002, p. 99
Several aspects of Owen’s proposal are worthy of note. First, there was an intention even at this stage to erect a permanent workshop structure, preferably in brick. Rather than any financial constraints, it was the urgent need for a suitable structure, coupled with the shortage of bricks, that prompted Owen’s request for a temporary building. Moreover, the building he was proposing was to be designed and erected in such a way that it could be integrated with the permanent structure when it was eventually built. This consideration would come to exert an important influence on the design of the permanent building. It is also apparent that the workshops Owen had in mind were not simply intended to serve the Power House – rather, their purpose was to carry out maintenance and repairs of all machinery in use at the federal capital site.
In expectation of a swift grant of approval from the Minister for Home Affairs, Owen asked the Assistant Electrical Engineer at the same time to get in touch with the senior architect in the branch he headed, John Smith Murdoch, who had prepared the plans for the Power House in 1911. Owen’s aim in issuing this directive was to ensure that plans for the temporary building were drawn up and construction was ready to start immediately the Minister gave his assent to the plan. Already, on 4 July, Harold W. Smith, the department’s Melbourne-based Assistant Electrical Engineer, had prepared preliminary drawings for the electrical stores and workshop building. These were passed onto Murdoch. (Minute, Director-General of Works to Assistant Electrical Engineer, ‘Electrical Store Building and Workshop at Canberra’, 19 July 1913; minute, Harold W. Smith, Electrical Engineer, to Works Director, Victoria, ‘Electrical Workshop’, 17 April 1914, both in CRS A199, item FCW1915/963)
But the expected prompt endorsement from the Minister failed to materialise. After a little
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over three weeks, Owen, losing patience, pushed the Secretary to secure a quick approval and re-affirmed his arguments for the temporary structure. In so doing, he further explained the urgency for the building and the purposes it was to serve:
‘On the general question of laying down this plant, it should be borne in mind that the Commonwealth has even now a large amount of machinery in use in the Territory. The necessity for repairs is inevitable; in addition to which the plant will be required for much original work in installing Power Plant, Transmission Lines and accessory apparatus.
Although I am recommending only a small Workshop Plant for the time being, it will probably be necessary to extend it within the next twelve or eighteen months to cope with the increased volume of Machine Shop work.’ (Minute, Director-General of Works to Secretary, Department of Home Affairs, ‘Electrical Store Building and Workshop’, 13 August 1913, CRS A199, item FCW1915/963)
While Owen’s immediate object was the erection of a temporary workshop building, his arguments are also indicative of the functions for which the permanent building would be needed.
A month later and the Minister had still not given the go-ahead. By this time, most of the machinery to be accommodated in the building was ready to be shipped to Canberra. Ministerial approval was eventually forthcoming in late October, though he reduced the funds allocated for the construction of the building and for the erection of the machinery to £1,000. Murdoch, meanwhile, prepared final drawings for the structure. (H W Smith, note on file, 19 September 1913; and minute, Smith to Works Director, Victoria, ‘Electrical Workshop’, 17 April 1914, both in CRS A199, item FCW1915/963)
The structure that was erected was a galvanised iron building that stood just to the southeast of the Power House on the same side of the rail line and immediately beside it. The building’s long axis was aligned parallel to the rail line. In its position and alignment, it mirrored one of the buildings shown as part of the ‘Power Plant and Workshops’ that had been depicted in the 1912 Departmental Board Plan, but with one major difference. A gap had been left between the building and the Power House, and in this gap would later be erected the Fitters’ Workshop. The long axis of the latter building would of course be perpendicular to the rail line. Whether the gap was deliberately left to accommodate a building with its axis on this alignment is not known, though it seems possible.
Figure 34. The Power House under construction in 1913, with Owen’s galvanised iron ‘temporary’ Electrical Store and Machine Shop at right Source: CRS M77, image no. 31, National Archives of Australia
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Figure 35. The Power House (right) in about 1914, with the ‘temporary’ Electrical Store and Machine Shop (centre) showing the gap between them Source: nla.pic-an14235363-42, National Library of Australia
Although Owen’s building was supposed to be a temporary structure, it in fact became a permanent fixture. Extensions were made to the building in the 1920s and, in an October 1922 site plan, it is labelled as ‘Machine Shop’. By mid-decade, it had become known as the Electrical Workshop or Electrical Fitters’ Shop. (Institution of Engineers, Australia 1928, p. 128; Jones 1983, p. 139)
A Permanent Building
Design work for the permanent building was underway by March 1915, if not before. A set of three architectural drawings dating from that and the following month show parts of the building, including details of the concrete piers and the steel roof trusses. The drawings refer to the building as the ‘Engineers’ Workshops’. While each of the drawings is signed by or on behalf of Owen, the building’s resemblance to the Power House leaves little doubt that the architectural design was the work of Murdoch.
It was to be some time before a start was made on construction of the building. In February 1916, Owen reported that power from the new Power House was being used ‘for all purposes in construction in connection with the... Workshops.’ The building was not being supplied with power from the Power House in early March, indicating that it had not yet been completed. By the middle of the month it was, or was about to be, supplied with electricity via a meter installed in or on the building. (Minute, Director-General of Works to Acting Secretary, ‘Re Supply of Electricity for Light and Power, in the Federal Territory’, 8 February 1916; memorandum, Clerk in Charge, Accounts Branch, to The Accountant, Department of Home Affairs, ‘Supply of Electricity for Lighting and Power in the Federal Territory’, 3 March 1916; H W Smith, Assistant Engineer (Electrical), to The Engineer, Department of Home Affairs, ‘Electric Supply – Canberra’, 15 March 1916, all in CRS A1, item 1919/8647)
Figure 36. The Power House with the completed Fitters’ Workshop at right in 1916 Source: W R Hiscock photograph, nla.pic- an23432132, National Library of Australia
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There is other evidence that the building was completed during 1916. In testimony on 7 August of that year before the Royal Commission on Federal Capital Administration, the accountant and valuer, W R Hiscock, stated that:
‘Of all the buildings erected at the capital site there was only one regarding which he was able to get the actual cost namely, the machine shop (£3,687), which was probably worth the money expended on it.’ (Queanbeyan Age and Queanbeyan Observer, 11 August 1916, p. 2)
The National Library holds a collection of Hiscock’s photographs and they include one of the Power House and finished Fitters’ Workshop that is dated to 1916 (see the figure above).
Another photograph which probably dates to slightly earlier in 1916 shows the Fitters’ Workshop in a nearly complete state. The photograph is interesting because it reveals that even at this early stage a small ancillary structure had been erected on the southeastern side of the building at its southwestern end. This may well have been the Blacksmiths’ Shop. It should be noted, though, that no mention is made of this facility in a list of structures that had been charged against the budget item for buildings in the Power House area between 1 June 1916 and 24 January 1917 (see below). However, this might only mean that funds to build the Blacksmiths’ Shop had been allocated and expended before June 1916.
Figure 37. The Power House in early 1916 with the nearly-completed Fitters’ Workshop at right and what may be the Blacksmiths’ Shop next to it Source: Canberra and District Historical Society photograph no. 1990
In its completed state, the Fitters’ Workshop was a reinforced concrete structure roofed with tiles (some 30 to 40 of which had to be replaced when they were blown off in a storm in 1928). The building was 132 feet long by 40 feet wide. On its southeastern side, it was provided with fewer windows possibly because at the time Murdoch was designing it there was already an intention to erect the Blacksmith’s Shop and other ancillary structures close to it on that side. Moreover, there was a large doorway on the same side near the northeastern end of the building which would have given easy access to the ‘temporary’ Electrical Store and Machine Shop which had been erected earlier. (Institution of Engineers, Australia 1928, p. 128; memorandum, George A. Rittinger, Mechanical engineer, to Acting Chief Engineer, 8 October 1928, CRS A86/1, item 189)
The budget item list referred to above was set down by the Works Superintendent, J D Brilliant, in January 1917. Included in the list was:
‘New fitters shop for provision of Traction Engine Fitters. Iron rack connected with same.’ (Minute, J.D. Brilliant, Works Superintendent, to Clerk in Charge, Accounts Branch, ‘Job 13, Buildings for Stores, Workshops, etc.’, 24 January 1917, CRS A361, item DSG/9999)
If this is in fact a reference to the Fitters’ Workshop that is the subject of this report, it gives some idea of its function when it was first built, as well as helping to explain its large size. Traction engines could be large pieces of machinery and would have required a large
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workshop.
Brilliant’s list included the following buildings as well: • additional provision for storage of electrical material; • removal from Acton, re-erection and extension of two buildings at Power House for use of Stores Officer; • one building, provision for motor garage; • removal from Acton, extension and re-erection one machine shed; • provision for storage of timber and iron at Stores Branch; • building for fire engine; • additions to saw milling sheds; • two sheds, provision for storage of timber; and • building provision for covering compressor plant.
The list provides a snapshot of the development of buildings and functions in the Power House area up to the beginning of 1917.
In comparing the amount expended on building the Fitters’ Workshop with that expended on other buildings at the Power House, the Royal Commission accepted Hiscock’s valuation of the other buildings as collectively worth only £2,435. This was despite the fact that an amount of £8,687 had been spent on them. ‘It is quite impossible,’ Commissioner Blacket reported, ‘that the amount stated, or even 50 per cent of it, could ever have been spent upon or in respect of these buildings.’ He added that he had found it impossible to determine whether the expenditure was ‘evidence of negligent bookkeeping, or of waste.’ (Report of the Royal Commission of Federal Capital Administration, vol. 3, 1917, p. 4)
Similarly, Blacket found that the expense of building the Power House itself had been inexplicably and unnecessarily excessive. While the building was said to have cost £39,596 to erect, Hiscock assessed its value as only £20,123 (Queanbeyan Age and Queanbeyan Observer, 24 April 1917, p. 2). Thus, the Fitters’ Workshop has some mark of distinction as the only building erected in the Power House area up to 1917 that was worth the money spent on it!
Federal Capital Advisory Committee
Six months after it first met in January 1921, the Federal Capital Advisory Committee issued its First General Report on the construction of Canberra. At this time, with the development of the capital just getting started again after World War 1, the Fitters’ Workshop was doing little more than storing a large quantity of ‘construction plant’, much of it purchased before work had earlier come to a halt. In the Power House area in general, ‘numerous temporary stores and other buildings’ existed from the period before the appointment of the FCAC. Already, however, the Committee had overseen the establishment of joinery works and a concrete pipe manufactory in the area. (FCAC 1921, pp. 6, 23.)
As the building program in Canberra intensified, industrial development and activity in the Kingston area expanded rapidly over the next twelve months. The Fitting Shop, as it was now called, was very busy. It is not clear, however, whether the name referred just to the Fitters’ Workshop as it is now known or whether it also included the earlier galvanised iron structure which, with extensions, nearly adjoined it to the southeast. The latter seems the more likely alternative.
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Figure 38. October 1922 Site Plan showing extensions to the Machine Shop, the Explosives Store and the Blacksmiths’ Shop with small addition Source: From CRS A192, item FCL1922/1110, National Archives of Australia
During the twelve-month period, the machine tools were concentrated in the ‘main workshop’ and the fitting, machine and overhauling sections were re-arranged. Part of the re-arrangement involved the erection of two large machine sheds which were reported in the latter half of April 1922 to be almost completed. These sheds are probably those shown on the October 1922 site plan as extensions of the earlier galvanised iron shed – they are labelled as the ‘Cart Shop’. It is possible, too, that they are the same entities as new buildings that were reported to have been erected in the period ‘for use as a machinery store and engine shed.’ (FCAC 1922, p. 10; Queanbeyan Age and Queanbeyan Observer, 25 April 1922, p. 2)
As to the work that the ‘Fitting Shop’ was performing in this period, the FCAC reported that:
‘The machine, fitting and other metal-working shops have been engaged continuously upon repairs, maintenance, and renewal of the various units of plant in operation in the Territory, including Power House equipment, Brickworks machinery, traction engines and waggons, steam-roller, portable steam- engines, pumps, keystone navvy, compressors and pneumatic tools, rock crushers, motor cars and the hand tools in use.’ (FCAC 1922, p. 12)
To assist in carrying out these tasks, a 15-inch lathe and an electrically-driven 4 foot 6 inch drill were installed in the Fitters’ Workshop, the latter in April 1922. (FCAC 1922, p. 10; Queanbeyan Age and Queanbeyan Observer, 25 April 1922, p. 2)
A small extension was also made to the Blacksmiths’ Shop in the early 1920s. By this time as well, a small Explosives Store existed between the Blacksmiths’ Shop and the Electrical Workshop, though it was much closer to the latter and stood next to the southeastern wall of the Fitters’ Workshop.
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Figure 39. Aerial photograph 27 November 1923 showing in particular the ‘temporary’ Machine Shop with its Cart Shop addition Source: National Library of Australia, photograph no. NL5679
The wide range of tasks that the Fitters’ Workshop was undertaking in these years highlights the fact that the facility was not an adjunct of the Power House, designed purely to service and repair its equipment. Instead, the Fitters’ Workshop was a facility that provided support to construction and development work in the federal capital as a whole.
Federal Capital Commission
The broad range of tasks that the Fitters’ Workshop undertook continued for the remaining years of the FCAC’s existence and through the entire period of office of its successor, the Federal Capital Commission (FCC) – that is, for the rest of the 1920s. Indeed, the work of the shop increased markedly during the FCC period. By 1925, the facility was valued at £5,123 and was employing a foreman and 62 other workmen. Shop staff carried out repair work on all kinds of plant, and manufactured minor parts as they were needed. For the twelve months ending 30 June 1925, the Fitters’ Workshop fulfilled 1,014 factory and standing orders, with its output valued at £9,658. (FCC 1925, p. 21; FCC 1926, p. 36)
In the succeeding twelve months, the number of factory and standing orders more than doubled to 2,608. The steady increase in the volume of work was such that Owen warned in mid-1926 that additions to the Fitters’ Workshop and plant would soon have to be made. Over the previous twelve months, several new machines had already been installed. But the growth particularly in work on motor vehicles and mechanical plant demanded extra floor space. In fact, Owen proposed establishing an entirely new section to deal with the work required on mechanical plant. (FCC 1926, pp. 29, 36)
This level of activity probably reflects the overall pace of development of Canberra – with a focus on the opening of the Provisional Parliament House in Canberra in 1927 and the need for facilities to support the growing population.
The Fitters’ Workshop was kept ‘very busy’ during the 1926-27 financial year, with the number of jobs increasing again by a factor of nearly fifty per cent to 3,866 jobs. In the first half of 1927, construction commenced on the additions that Owen wanted. As the Architect’s Department of the FCC described them in the middle of that year:
‘Two additional wings are being erected at rear of the main Fitters’ Workshop, Eastlake, to give accommodation for electrical workshops, etc., and foundry and motor car repair shop, etc.’ (FCC 1927, p. 59)
The description indicates that extensions were being made to both sets of galvanised iron structures that stood immediately to the southeast of the Fitters’ Workshop. Both of them were double-storey. On the northeastern wing, the flat-roofed 1922 Cart Shop was
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partially or wholly demolished and replaced by a shorter two-storey section with a hipped roof. This provided extra floor space for the Electrical Workshops. A more substantial addition was made to the southwestern wing, which hitherto consisted of the old Blacksmiths’ Shop. This addition, too, was a hipped roof structure and, when completed, made the southwestern wing longer than its northeastern counterpart. The new structure accommodated a foundry and, towards the end of the extension, a repair shop for motor vehicles. At the very end of the extension, a Plumbers’ Workshop was provided and, above it, a store for motor vehicle spare parts. (Memorandum, Assistant Chief Engineer, FCC, to Executive Architect, ‘Maintenance Plumbers Workshop, Kingston’, 27 July 1928, CRS 86/1, item 189)
Completed in December 1927, the additions made for greater ease of work and improved efficiency throughout the workshop complex. By this time, the Fitters’ Workshop was carrying out a large amount of construction and maintenance work for the ‘Transport Section, Plant Section, Brickworks, Abattoirs, Building Construction Branch, Quarries, and general construction work.’ (FCC 1928, pp. 39, 41)
Figure 40. Aerial photograph 1925 showing the wings extending from the Fitters’ Workshop, the northeastern wing with the flat-roofed Cart Shop and the southwestern wing comprising only the Blacksmiths’ Shop Source: National Library of Australia, photograph no. 204/5/17
In February 1928, the Institution of Engineers of Australia held its Sixth Engineering Conference in Canberra. During their visit to the national capital, the conference attendees inspected many of the city’s buildings and engineering works and facilities. Among these were the ‘Factories and Repair Shops’ at Kingston, a detailed description of which was published in the Institution’s Quarterly Bulletin. The article is worth quoting at some length for the light it sheds on the machinery and functions of the Fitters’ Workshop and its wings at this time. The Shop,
‘contained 6 lathes, 3 drilling machines, 1 Universal milling machine, 1 Universal grinding machine, planing machine and shaping machine and the usual assortment of hacksaws, emery wheels, etc. Wings are extended on each side of the main building, one of which contains the Blacksmiths’ Shop, with 6 forges with mechanical blowers, and 30 cwt. steam hammer, a small foundry and an acetylene welding plant, pattern makers and wheelwrights’ shop, and a motor repair shop of 5,000 sq. ft. area.
The other wing contains the Electrical Fitters’ Shop of 5,300 sq. ft. area, containing lathe, drills, etc., and other small tools required by this section.’ (Institution of Engineers, Australia 1928, p. 128)
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Figure 41. Aerial photograph from about 1928 showing the new double- storey hipped roof extensions to the Fitters’ Workshop Source: National Library of Australia, unnumbered photograph from Sir John Butters’ Collection
The additions to the two wings of the Fitters’ Workshop marked the peak of work activity in the complex. But a decline in work swiftly followed. During the 1928-29 financial year, the workshops spent a greater proportion of their time maintaining and repairing the FCC’s motor vehicles. These included tractors, loaders, graders, ditchers, rollers and steam-shovels. Workshop staff also carried out regular inspections of lifts and boilers, and attended to the maintenance of all heating, hot water and mechanical services in Canberra’s buildings. Although the turnover for the year was £33,199, the number of jobs performed dropped somewhat to 3,554. (FCC 1929, p. 71)
In the ensuing ten months, the number of jobs undertaken fell further to 2,572 as development of the national capital slowed and the FCC’s term of office approached its end. In fact, the workshops were idle for most of the period between mid-December 1929 and mid-January 1930. Again a hefty proportion of the jobs that were carried out involved the service and repair of motor vehicles. Along with the slowdown in development activity in Canberra, staff numbers at the Fitters’ Workshop and neighbouring workshops were drastically reduced. With astoundingly poor timing, the Canberra Branch of the Australian Natives Association chose this moment to lobby the Minister for Home Affairs to establish apprenticeships for young male school-leavers at the Fitters’ Workshop, to prevent their drifting into ‘dead-end employment’. But there were now few, if any, opportunities at the Fitters’ Workshop, and it was about to enter a period of much reduced activity. (FCC 1930, pp. 16, 21; memorandum, W. Lancaster, Acting Accountant, to Chief Commissioner, FCC, 31 March 1930, CRS A6267, item F1930/79; Canberra Times, 13 August 1929, p. 1)
Decline and Transition
The Great Depression and the winding up of the FCC put a halt to much of the construction and development work in Canberra. During the 1930s and into the next decade, the Fitters’ Workshop was probably engaged in the maintenance and repair of existing plant and services in the capital – there would have been little requirement for additional tasks or the staff to perform them. As a consequence, little or no change was made to the structure of the Fitters’ Workshop and its adjoining buildings. The Electrical Fitters’ Shop, as the more northeasterly of the two extensions from the original Fitters’ Workshop building, continued to serve the function for which it was erected in the 1920s. In like manner, the southwesterly extension and the Fitters’ Workshop itself continued to carry out mechanical fitting and engineering tasks – in fact, by the mid-1940s they were sometimes referred to as the Mechanical Workshop(s). A site plan dating from October 1941 shows no change to the Fitters’ Workshop and its extensions since the end of the Fitters’ Workshop Conservation Management Plan Page 29
1920s. (CRS A292, item C19705; ‘Future Development of the Kingston Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, p. 5, CRS A3032, item 28/8/1)
Figure 42. October 1941 Site Plan demonstrating little external change to the size and shape of the Fitters’ Workshop and its wings Source: From CRS A292, item C19705, National Archives of Australia
But there was some concern about the rather haphazard way in which the whole Kingston industrial area had developed and the way in which it would develop in the future. The different functions that were carried out there were not well segregated, there was a ‘multitude of tracks leading any and everywhere’ and the area exhibited an appearance of general untidiness. In January 1941, the senior officers responsible for the various industrial functions carried on at Kingston held a conference to consider the future development of the area. They agreed to the drawing up of tentative boundaries for each functional section and to the need for laying out permanent roads. Of most significance for the long-term future of the Fitters’ Workshop was a realisation at this early stage that the area should conform in some degree to Garden City principles and to meet wider community interests. The conference agreed that a strip of land at least 150 yards wide should be reserved along the riverbank for a lakeside boulevard and a belt of trees to screen the area from the gaze of the general public. (‘Kingston Stores Yard Area: Notes of a Conference held to consider the future development of the area’, 15 January 1941; and ‘Future Development of the Kingston Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, p. 5, CRS A3032, item 28/8/1)
For understandable reasons, the decisions reached at the conference yielded no immediate practical outcome. Any further thoughts of the future of the Kingston industrial area were
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put off for some time by the emergence of a far more pressing issue, namely the outbreak of war with Japan. The war made its presence felt in the area in a rather more direct way, too. In April 1942, slit trenches with timber revetments were constructed close to the Fitters’ Workshop to provide protection against possible air raids. In the event, it was not until October 1943 that the Kingston senior officers held their second meeting to discuss the future development of the area. (Canberra Times, 30 April 1942, p. 4)
The second meeting trod exactly the same path as the first meeting and reaffirmed its decisions, but there were some important additions. The most significant of these for the Fitters’ Workshop concerned the existing Electrical Fitters’ Shop. There had evidently been dissatisfaction for some time about the poor standard of accommodation on site for some of the plant equipment. As a solution to the problem, the meeting determined that the Electrical Engineer and his staff should vacate the Electrical Fitters’ Shop and that it be handed over to the Plant and Mechanical Engineer for the storage of plant. This meant that a new Electrical Fitters’ Shop would have to built, and the senior officers urged that this should occur as soon as possible. (‘Future Development of the Kingston Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, p. 4, CRS A3032, item 28/8/1)
Figure 43. 1946 Preliminary Layout Plan for the Mechanical Engineers’ Workshop showing the amenities block at the end of the northeasterly extension from the Fitters’ Shop Source: CRS A2445, item M7794B, National Archives of Australia
Another matter of relevance to the Fitters’ Workshop was also discussed at the meeting. A little to the northeast of the southwesterly extension from the Workshop stood a small lavatory block. Those present at the meeting agreed that it was ‘badly located’ as it stood in the way of any further addition to the southwesterly extension (that is, the Mechanical Workshop). The lack of a sewerage system over much of the Kingston site made it impossible as yet to remove the lavatory block, but the meeting decided that nothing more than temporary improvements should made to the block before it could be demolished. These considerations, including the availability of a sewerage connection, may well have provided the rationale for the construction of an amenities block as a small extension to the Electrical Fitter’s Shop in the period 1944-46. (‘Future Development of the Kingston
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Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, pp. 3-4, 5, CRS A3032, item 28/8/1; CRS A2445, item M7794B)
The fate of the Electrical Fitters’ Shop, meanwhile, remained unresolved. By March 1944, the National Capital Planning and Development Committee (NCPDC) had decided on a site for the proposed new Shop to the north of the Power House and on the other side of the railway line from it. But the proposal was soon dropped when the Committee realised that the site was too close to the river and that dampness and humidity would have a deleterious effect on the Shop’s electrical equipment. The departmental architect H M Rolland promptly came up with a new scheme to erect the Shop on a site between the Power House and Wentworth Avenue. At the same time – June 1946 – he proposed the demolition of the Mechanical Workshop constituting the southwesterly extension from the Fitters’ Shop and its replacement by ‘a larger and more suitable’ building on the same site. (Extract from 38th Meeting of the National Capital Planning and Development Committee [NCPDC], 8-9 March 1944; extract from Minutes of the 49th Meeting of the NCPDC, 13- 14 May 1946; and extract from Minutes of the 50th Meeting of the NCPDC, June 1946, all in CRS AA3032, item 22/1/1A; additional extract of Minutes of the 50th Meeting of the NCPDC, June 1946; and extract of Minutes of the 51st Meeting of the NCPDC, 11-12 July 1946, both in CRS A3032, item 22/1/1)
Figure 44. 1947 Layout of the Fitters’ Shop showing the disposition of Equipment Source: CRS A2445, item M7997C, National Archives of Australia
These proposals lasted barely a month. In August, Rolland outlined a new scheme for the Electrical and Mechanical Workshops to be amalgamated into a single double-storey building to extend in a southeasterly direction from the Fitter’s Shop. The scheme, which necessarily entailed the demolition of the existing extensions from the Fitter’s Shop (except for the amenities block), envisaged the coverage by the new building of the whole area currently occupied by the two extensions, as well as the space between them. This remained the preferred option for two years before it, too, was abandoned. In a partial return to an earlier scheme, a two-storey Electrical Workshop was to be erected on the site previously proposed for it between the Power House and Wentworth Avenue. Simultaneously, the huge replacement extension to the Fitters’ Shop that Rolland had proposed was to be used entirely as the Mechanical Workshops. In the end, however,
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neither scheme would ever be realised. (Extract of Minutes of the 52nd Meeting of the NCPDC, 8-9 August 1946; memorandum, C S Daley to H M Rolland, ‘Canberra Power House and Mechanical Workshop’, 19 August 1946, both in CRS A3032, item 22/1/1; Drawing no. 17898, ‘Proposed Electrical Workshop Kingston Canberra’, 6 October 1948, CRS A3032, item 22/1/1A)
A major reason for the vast expansion of floor space that the NCPDC felt was needed for the Mechanical and Electrical Workshops may have been the growth in the volume of work they performed after the doldrums of the 1930s. If the statement of an appellant before the ACT Conciliation Commissioner in February 1952 is accurate, then the variety of work that the Fitters’ Workshop was expected to carry out had ‘increased tremendously’ over the previous ten years. The appellant was the leading hand fitter and turner at what he called the Kingston ‘Transport workshops’. Whether this was the same as or included the Fitters’ Workshop is not clear, especially as the Bus Depot was nearby. (Canberra Times, 27 February 1952, p. 2)
A new focus on the Kingston industrial area occurred in 1955 with the appointment of a Senate Select Committee to inquire into the development of Canberra or, more correctly, the lack of it. In its deliberations, the Committee came to the firm view that such an important area as Kingston should be turned over to the use that Griffin originally intended for it. The Committee recommended that no new government industries or buildings should be planned for or built in the Kingston area, and that the existing industries should be progressively relocated to the new industrial area at Fyshwick.
‘Consideration should also be given, the Committee felt, to clearing the whole of the Kingston- Causeway industrial area, shifting the railway station to Fyshwick and designating the entire area for residential development.’ (ACTEW file G83/385/1, quoted in O’Keefe 1993, pp. 26-7)
Figure 45. One of the 1956 schemes for heating the Fitters’ Shop, showing some of the internal layout at that time Source: CRS A2445, item M9029C, National Archives of Australia
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At first, the Committee’s recommendations were completely ignored, if not actively undermined. In the same year as the Committee was appointed, the NCPDC revived the scheme it had approved in 1948 to build new Electrical Workshops on a site between the Power House and Wentworth Avenue. Fresh drawings were prepared and the NCPDC averred that it was now necessary to erect the building ‘at an early date’. The Electrical Workshops were built later in the 1950s, though not on the preferred site. Rather, they replaced the existing workshop in the northeasterly extension from the Fitters’ Shop. About the same time, the Fitters’ Shop itself was fitted with a heating system. (Drawings nos. 23200, 23201 and 23202, May 1955; and extract from Minutes of the 145th Meeting of the NCPDC, 7-8 December 1955, all in CRS A3032, item 22/1/1A; ACTEW file G64/14 part 3; CRS A2445, items M8995B and M9029C, 1956)
The formation of the ACT Electricity Authority (ACTEA) in 1963 helped to entrench the continuation of the Kingston area as an industrial centre. Having inherited a site valued at $273,966 and containing 25 buildings, ACTEA was not easily going to surrender it. Indeed, ACTEA later set about re-developing the area, demolishing many of the smaller rundown structures that were used for storage purposes and replacing them with one large storehouse. In 1967, the Authority added an extension onto the Electrical Workshops. The whole Electrical Workshops building, however, was demolished in 1974 and replaced with a new stores building that was ‘amalgamated with the old fitters shop.’ By repute, the Fitters’ Workshop was only used for storage purposes by this time. (ACTEW file G83/385/1; O’Keefe 1993, p. 27; Jones 1983 p. 139)
Figure 46. Site plan from about 1964, showing the Fitters’ Workshop at right with its two extensions Source: CRS A9663, item 23062, National Archives of Australia
Revival and Transformation
The Canberra community was first alerted to the heritage significance of the Power House and perhaps, too, its neighbour, the Fitters’ Workshop through the efforts of the local community activist, Ian Hirst. From the early 1980s until well into the 1990s, Hirst campaigned tirelessly for the retention of the Power House and its conversion into a centre for arts, entertainment and other community uses. To him is due the germ of the idea to convert the Power House and by extension its precinct, including the Fitters’ Workshop, into an arts centre. The first formal recognition of the heritage significance of the Power House occurred in July 1981 when it was classified by the National Trust. Two years later, it was entered in the Commonwealth Government’s Register of the National Estate and listed with the Royal Australian Institute of Architects. (O’Keefe 1993, pp. 31-3)
Pressure had also been mounting to put an end to the de facto industrial centre that Kingston had become and to turn it over to the residential use that Griffin had intended for Fitters’ Workshop Conservation Management Plan Page 34
it. Accordingly, in 1995, the ACT government acquired the 37 hectare Kingston foreshores site from the Commonwealth and embarked on a community consultation as part of a process to decide how to redevelop the area. This led on to the holding of a national design competition for the site in 1997. The competition was won by the Canberra architect Colin Stewart who produced a master plan that included a cultural precinct which made use of two of the site’s heritage structures, the Power House and the Fitters’ Workshop. (Land Development Agency)
The beginnings of the community uses of the Kingston industrial area took place in 1998 with the opening of the Old Bus Depot Markets. After ACTEA’s successor ACTEW finally quit the Kingston site a few years later, the ACT government released its Arts Facilities Strategy in 2003 which expressly identified the Fitters’ Workshop as ‘a future hub for visual arts production.’ The Power House, too, was earmarked as a centre for the visual arts and, in 2007, the Canberra Glassworks opened in the building, supported by ACT government funding. In the meantime, the first three residential developments of the Kingston Foreshore project had been completed. (Canberra Times, 4 July 2009)
In its 2008 campaign for re-election, the ACT Labor Party promised to upgrade the Fitters’ Workshop and to commit $1 million to the project. Following the election, the new government provided a sum of $30,000 in the 2008-9 budget for a study to assess potential uses for the building. In the budget for the next financial year, a further amount of $200,000 was allocated for preliminary design work to make the building suitable for a visual arts workshop. Foremost among the issues to be considered was the provision of water, electricity and bathroom services, as the building lacked all three. (The Chronicle, 19 May 2009, p. 5)
In the meantime, Megalo Print Studio approached the ACT government with a request to be granted use of the building for visual arts purposes. As the proposal accorded with the government’s general plans for the Fitters’ Workshop, Megalo appeared to have the inside running on securing the building. However, a complicating factor emerged in May 2009 when the building was used as a concert venue for the Canberra International Music Festival. No less a luminary than the eminent Australian composer Peter Sculthorpe stated that the Fitters’ Workshop had the best acoustic properties of any building in Australia.
Relying on the authority of Sculthorpe, the Pro Musica organisation put forward a counter- proposal for the building to be used as a multi-purpose cultural facility, hosting such events as music and theatre performances, temporary exhibitions and book fairs. Pro Musica’s president, Don Aitkin, was adamant that ‘the structure should not be compromised’ from the viewpoint of retaining its acoustic properties. He specifically did not want interior walls erected, the ceiling changed, or cloth and fabric put up. Notwithstanding this alternative proposal, the ACT government remains committed to adapting the Fitters’ Workshop for use by the Megalo Print Studio. (Canberra Times, 4 July 2009)
Physical Changes to the Building
Throughout the life of the building numerous small and larger changes have been made. However, the reasons for the changes and dates are unclear in a number of cases. A summary of the changes are as follows: • original door in southwest converted to a window; • original window in northwest converted to a door; • widening of the southeast and northwest doors; • new slab laid over existing slab;
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• grilles removed from southwest windows; • ceiling installed, roof trusses reinforced and covering of louvre windows in 1956, perhaps as part of heating the building; • two storey office structure possibly installed inside workshop, and later removed; • machinery removed, except for crane; • awning(?) windows fixed shut; • installation of an electric hoist on the crane; • shelter constructed along northwest of Workshop, and later removed; • roof refurbished and skylights removed; • 2006 upgrade works: • repair and repaint ceiling; • new insulation and sarking in roof cavity; • two doorways in southeast elevation closed up; • new downpipes and gutters, removal of existing downpipes – new downpipes in different locations; • timber (glass?) louvres repaired and repainted; • repainting of roof ventilators; • removal of an exhaust stack in southeast side of roof, northeast end; • external render stabilised/repaired, perhaps including re-rendering/re-finishing of the northeast elevation; • window glass replaced, and window mechanisms repaired (the latter may not actually have been undertaken); • timber doors repaired; • various switchboards, cables and services removed; • barge boards repainted; • asbestos sheeting for soffits at gables replaced with fibro-cement sheets; • climbing plant on northwest elevation removed; • temporary building with link to Workshop installed on southeast side; and • post 2006, doorway in southeast elevation closed up, and temporary building removed.
Some other works were indicated as part of the 2006 program however, these were apparently not undertaken.
A number of historical plans indicate the Fitters’ Workshop and the initial structures to the southeast were separated by a short distance. As the initial structures pre-dated the Workshop, it seems possible this separation was necessary to enable construction of the Workshop. However, over time, and with subsequent wings to the southeast, this separation was either bridged or eliminated.
Figure 47. Fitters’ Workshop in 2005 Source: Duncan Marshall
Note: There are grilles on the southwest windows and climbing plant on the northwest elevation.
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4. EVIDENCE OF OTHER VALUES: AESTHETICS, CREATIVE AND TECHNICAL ACHIEVEMENT, SCIENTIFIC AND SOCIAL
4.1 AESTHETICS, CREATIVE AND TECHNICAL ACHIEVEMENT
This section briefly presents evidence of creative achievement which is then analysed in the following chapter.
The Fitters’ Workshop displays a number of the features of the Inter-War Stripped Classical style: • symmetrical façade, noting the later change of one window in the northwestern elevation into a door thereby reducing the symmetry; • division into vertical bays indicating classical origins; • vestigial classical entablature or cornice; • simple surfaces; and • large, simple areas of glass (Apperly, Irving & Reynolds 1989, p. 166).
In addition, the building displays evidence of creative achievement through: • its impressive size both externally and internally; and • in its setting and planned relationship to the former Kingston Power House which shares a similar architectural character.
The Fitters’ Workshop was of high technological significance in its day for the range of machine plant which was central to the maintenance capability of Canberra’s power supply and developing infrastructure. However the limited remaining evidence reduces this significance other than as a tangible reminder of the physical location of this central facility.
4.2 SCIENTIFIC VALUE – ARCHAEOLOGICAL POTENTIAL
Aboriginal Heritage
Tribal Boundaries and Ethno-history Tribal boundaries within Australia are based largely on linguistic evidence and it is probable that boundaries, clan estates and band ranges were fluid and varied over time. Consequently 'tribal boundaries' as delineated today must be regarded as approximations only, and relative to the period of, or immediately before, European contact. Social interaction across these language boundaries appears to have been a common occurrence. A reconstruction of clan boundaries based on Tindale (1974) indicates that the southern Canberra area was close to the tribal boundaries of the Ngunnawal and Walgalu people. Horton's (1999) map shows the Ngarigo tribe in the southern Canberra area.
There is some uncertainty as to which language was spoken by the Aborigines of Canberra. The Canberra area appears to have been close to the linguistic boundary between the Gundungurra and Ngunnawal languages. Eades (1976) notes that published grammars for these two languages (Mathews 1900, 1901, 1904) are virtually identical. However, according to Eades’ boundaries, the Ngunnawal of Canberra probably spoke the Fitters’ Workshop Conservation Management Plan Page 37
Gundungurra language.
References to the traditional Aboriginal inhabitants of the Canberra region are rare and often difficult to interpret (Flood 1980, Huys 1993). The consistent impression however is one of rapid depopulation and a desperate disintegration of a traditional way of life over little more than fifty years from initial white contact (Officer 1989). The disappearance of Aborigines from the tablelands was probably accelerated by the impact of European diseases which may have included the smallpox epidemic in 1830, influenza, and a severe measles epidemic by the 1860s (Flood 1980, Butlin 1983).
By the 1850s the traditional Aboriginal economy had been largely replaced by an economy based on European commodities and supply points. Reduced population, isolation from the most productive grasslands, and the destruction of traditional social networks meant that the final decades of the region's indigenous culture and economy were centred around white settlements and properties (Officer 1989).
Aboriginal Archaeological Context The Fitters’ Workshop is located near the southern shore of Lake Burley Griffin, which has been formed by the damming of the Molonglo River.
It may be assumed that the Molonglo River corridor was an important prehistoric Aboriginal resource zone that attracted a considerable level of hunter-gatherer occupation. This importance may have paralleled that of the Murrumbidgee River corridor, where over two hundred Aboriginal sites including open camp sites, stone quarries, scarred trees and ceremonial sites had been recorded by the early 1990s (Klaver 1993).
Archaeological surveys carried out along sections of the lower Molonglo suggest that gentle slopes, spurs and alluvial flats along the river will exhibit the highest archaeological potential (English 1985). These areas are sheltered climatically and located close to resources. The Molonglo River valley was the prime source of water and food resources and provided access to the Limestone Plains for local and visiting Aboriginal groups (NCPA 1995, GML 2009).
Based on the brief records and observations made by a limited number of interested local individuals and artefact collectors it appears that the larger sites in the central Canberra area were associated with the sand bodies situated within, and adjacent to, the fluvial corridor of the Molonglo River (Robinson 1927, Binns 1938, Moss 1939, Bluett 1954, Schumack 1967, NOHC 2006a, GML 2009).
Historically, artefacts have been recovered from areas adjacent to the Molonglo River that became submerged after the formation of Lake Burley Griffin. Since those artefacts were collected the sites now consist solely of marked locations on a map. There are two instances, one by Moss and one by Kinsela of collected artefacts being removed from sites that now are within the lake boundaries. Kinsela marks the location on his map where Moss just gives a description as a sandy ridge between Parliament House and the Molonglo River. It is possible that Moss’ site was closer to Parliament House and thus not within the lake boundaries. However, it is more probable that it was found in the continuation of the same sandy ridge as Kinsela’s, close to the Molonglo River.
The design and construction of Lake Burley Griffin transformed the Molonglo River corridor from a largely natural terrain to a highly managed civic landscape. The lake now obscures many of the elements which would have been valued by its pre-twentieth century
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indigenous custodians – the resources of the river, and the camping and ceremonial grounds on its banks and adjacent slopes. Despite this imposition, the lake has a little known and unanticipated symbolism which relates to the distant Aboriginal past. Geomorphological studies of the Molonglo valley have revealed lacustrine deposits which indicate that a lake once existed in approximately the same location as the modern lake (Legge in Woolnough 1938, Opick 1958). It is thought that this natural lake formed during colder and drier conditions, such as in the Pleistocene period, when slope deposits derived from Black Mountain dammed the Molonglo. There is a possibility that the high water stage of the lake persisted into the period of human occupation and was at one time a feature of indigenous occupation.
While no evidence of Aboriginal occupation relating to the prehistoric Lake Burley Griffin has yet been identified, the modern reinstatement of the lake can at least be seen as a symbolic return of the ancient Canberra landscape, and of the indigenous cultural landscape which developed around it.
Aboriginal Archaeological Sensitivity A number of archaeological assessments have been conducted in areas close to the Fitters’ Workshop. Assessments have also been undertaken in areas that may have had similar topographic attributes to Kingston in the past. These include Duntroon (NOHC 2001, 2008a), Russell (NOHC 2008b, 2008c, 2008d), Dairy Flat (NOHC 2002), Fyshwick (AASC 2002; NOHC 2010a), Jerrabomberra Wetlands (NOHC 2002; AASC & CHMA 2008), Pialligo (Trudinger 1989), Questacon (NOHC 2006), and most recently at East Lake (NOHC 2009, 2010b).
Aboriginal site types recorded in these areas include scatters of stone artefacts, isolated stone artefacts and subsurface deposits of stone artefacts.
Figure 48. Location of the Fitters’ Workshop (blue circle) relative to the pre-Canberra landscape as recorded in an extract from c.1912 contour map of the site of the federal capital Source: Base image [Map of contour survey of the site for the Federal Capital of Australia], c.1912, Dept of Lands, Sydney, from original plan by F. J. Broinowski, September, 1910. http://nla.gov.au/nla.map- nic16
The Fitters’ Workshop is situated on the crest of a low spurline situated adjacent to the
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floodplain of the Molonglo River (Figure 48). Based on the results of previous studies in similar areas it is considered likely that Aboriginal sites would have been present in the vicinity of the Workshop. However, the levels of industrial development and activity that have occurred in the area has reduced the Aboriginal archaeological potential of the area to low.
Historical Archaeological Sensitivity
The area to the immediate northeast of the Power House and Fitters’ Workshop has considerable archaeological potential. Early plans of the area (1912, 1919, 1925 and 1927) and photographs from the 1950s show the original 1913-14 railway system in that area, which provided coal to the Power House from 1914. The railway lines, their alignment and the embankment built for them are an intrinsic feature of the overall operation and industrial servicing of the site.
Based on a review of photos, maps and plans of the Fitters’ Workshop site, it is considered that subsurface archaeological remains of earlier buildings including the Blacksmith’s Shop, Explosives Store and Joinery Shop may be present in the area to the southeast of the current Fitters’ Workshop. The figures below show the site and the changes to the buildings to the southeast of the current building over time (based on extracts from Freeman Collett & Partners 1993).
It is not known if recent paving and building in the area has reduced/removed the potential for subsurface archaeological remains to be present, however, results of previous monitoring and recording programs conducted in the Kingston Power House and Foreshore areas have shown that subsurface cultural material can remain in previously disturbed contexts in the Kingston area (NOHC 2006c, 2007, 2007-2008). There is significant historical and archaeological evidence (for example, sections of a single original railway track exposed during excavation in late June/early July 2006) to indicate there are further remains of at least three sets of railway lines aligned in a northeast/southwest orientation, and a built-up railway embankment, in the area to the immediate northeast of the Power House and the Fitters’ Workshop.
Archaeological evidence may include the remains of the blacksmith shop and fittings/materials including metal remains, post holes or foundations of buildings, and artefacts that may elucidate of the construction and use of these buildings.
Figure 49. Sequence of Historical Plans indicating Development and Changes in the area to the Southeast of the Fitters’ Workshop Source: Base plans from Freeman Collett & Partners 1993
1918 Site Plan (Current building in red)
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1925 Site Plan
1942 Site Plan
1952 Site Plan
1972 Site Plan
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1992 Site Plan
2001 Site Plan
Summary
If subsurface archaeological deposits remain undisturbed in the vicinity of the Fitters’ Workshop they would constitute a potential archaeological resource that would contribute to the understanding of the uses of the site, and would supplement the knowledge of early industrial/engineering buildings in the ACT.
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4.3 SOCIAL VALUE
There is currently little evidence of social value being attached to the Fitters’ Workshop as an individual place. However, such values have not been subject to detailed research.
It is a prominent building in a precinct which includes the Canberra Glassworks and Old Bus Depot Markets. While these other buildings have or appear to have social value through strong and special associations with the Canberra community (see for example ACT Heritage Council 2010), the Fitters’ Workshop as an individual element does not. In part this may be explained by the use of the building through the latter part of the twentieth century for storage, rather than functions which involved many people or the wider community. The Workshop is also a much less prominent building than the Canberra Glassworks.
In recent years this situation has not changed greatly and the Workshop is largely unused. However, the more recent occasional use for public functions or displays has raised public awareness of the building and with more time, such uses would be likely to result in social value.
The Workshop may also share the social value attached to the Canberra Glassworks given the proximity of the buildings and their shared architectural character. The social value of the historic precinct including these buildings has not been researched.
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5. ANALYSIS OF EVIDENCE
This analysis has been prepared by the consultant team using the evidence presented in Chapters 3-4 which has been analysed against the criteria for the ACT Heritage Register (reproduced at Appendix D), and judgements have been reached on the basis of the professional expertise of the consultants. The analysis is divided into sections related to the criteria.
(a) It demonstrates a high degree of technical or creative achievement (or both), by showing qualities of innovation, discovery, invention or an exceptionally fine level of application of existing techniques or approaches
The Fitters’ Workshop is an example of the Inter-War Stripped Classical style which displays five indicators of this style including three key indicators (see Section 4.1 for details).
The building is also one of 13 examples of the Inter-War Stripped Classical style in Canberra (based on a search of the Australian Heritage Database). The other examples are: • Canberra Glassworks (former Kingston Power House, 1915); • John Gorton Building (formerly Administrative Building, 1924-56); • Yarralumla or Government House, additions of 1925-27; • Ainslie Public School (1927); • CSIRO Buildings 9 and 10 - Yarralumla (formerly Australian School of Forestry, 1927); • East and West Block Offices (1927); • Old Parliament House (formerly Provision Parliament House, 1927); • CSIRO Main Entomology Building (1929-30); • National Film and Sound Archive (formerly Australian Institute of Anatomy, 1930). • Canberra School of Art (former Canberra High School, 1938); and • Robert Garran Offices (formerly Patent Office, 1941).
The Canberra Glassworks and Fitters’ Workshop obviously share a common history and design, and are early examples of the style. The examples from around the 1930s tend to display a fusion with the Inter-War Art Deco style. Several of these examples were designed by John Smith Murdoch (Canberra Glassworks, Yarralumla additions, Ainslie Public School, East and West Block Offices, and Old Parliament House).
While not formally identified in the style, the original Cotter Pumping Station buildings would also appear to be comparable, they were also designed by Murdoch and date from the same period as the Workshop.
Examples of the Inter War Stripped Classical style can be found in most States as well as the ACT. Most of these examples are government or commercial buildings which are of moderate size.
Given this context and the surviving features of the Fitters’ Workshop, it is considered a good and early example of the Inter-War Stripped Classical style.
In addition to its style, the Workshop also has several qualities which contribute to its creative achievement, these being:
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• its impressive size both externally and internally; and • its setting and planned relationship to the Canberra Glassworks which shares a similar architectural character.
The Fitters’ Workshop housed an exceptionally fine collection of engineering machinery that was central to the maintenance and development of Canberra’s early infrastructure. However, this collection is largely no longer present and the technical achievement is much reduced.
(b) It exhibits outstanding design or aesthetic qualities valued by the community or a cultural group
While the Fitters’ Workshop displays significant design and aesthetic qualities, as noted under other criteria, there is currently no evidence these are valued by a community or cultural group. More detailed research may substantiate such value.
(c) It is important as evidence of a distinctive way of life, taste, tradition, religion, land use, custom, process, design or function that is no longer practised, is in danger of being lost or is of exceptional interest
As discussed under Criterion (a) above, the Workshop is evidence of a distinctive design, the Inter-War Stripped Classical style, which is both no longer practiced and of exceptional interest.
The Workshop is also evidence of a distinctive function which is no longer practiced and is of exceptional interest – the centralised government provision of workshop/industrial/ engineering services for the city of Canberra, as part of an overall planned approach to city development. The Workshop was one of a number of industrial/engineering workshops providing centralised government services in the early years of the development of the national capital. Such services included mechanical, electrical, transport, joinery, roadworks and printing, and these services operated at Kingston through until about 1994. Over time there has been a change in the delivery or location of such services, with some services being outsourced to the private sector and other services being relocated or decentralised. There are few remains from this earlier phase – the former Power House, former Transport Depot and the Fitters’ Workshop.
As part of this function, the Workshop was important in the training of apprentices who were essential in maintaining a skills base for the operation and maintenance of the Kingston Power House and other facilities over many years.
(d) It is highly valued by the community or a cultural group for reasons of strong or special religious, spiritual, cultural, educational or social associations
As noted in Section 4.3, there is currently little evidence of social value being attached to the Fitters’ Workshop as an individual place although this is an aspect that has not been subject to detailed research. The Workshop may also share social value attached to the Canberra Glassworks and the broader historic precinct, including the Old Bus Depot Markets, but again this has not been researched.
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(e) It is significant to the ACT because of its importance as part of local Aboriginal tradition
While consultations have not been undertaken with the local Aboriginal community, there is no suggestion from other sources of the Workshop having value under this criterion.
(f) It is a rare or unique example of its kind, or is rare or unique in its comparative intactness
The Fitters’ Workshop might be considered an example of: • an early twentieth century industrial/engineering building; and • Inter-War Stripped Classical architecture.
The architectural style is discussed above at Criterion (a).
The Workshop might be compared with a small number of other early twentieth century industrial/engineering buildings in the ACT, including the: • Cotter Pumping Station and Electricity Substation (1912-25); • Yarralumla Brickworks (1913-1970s); • Canberra Glassworks (former Kingston Power House, 1915); • Old Bus Depot Markets (former Kingston Transport Depot, 1927) • Dairy Farmers Co-operative (1937); and • Canberra City Garbage Incinerator (1941) (based on a search of the Australian Heritage Database).
Canberra was never intended as a major industrial centre and accordingly the scale and number of industrial/engineering buildings was and remains modest and small. None the less, the Workshop is a relatively rare example.
On the other hand, the Workshop does not appear significant because it displays rarity in its comparative intactness. Amongst the places noted above, several of these are arguably more intact, especially regarding their industrial character. While the Workshop building is reasonably intact, it has lost most of its machinery and other evidence of its industrial/ engineering use.
(g) It is a notable example of a kind of place or object and demonstrates the main characteristics of that kind
The Workshop is a notable example of Inter-War Stripped Classical architecture as discussed under Criterion (a) above.
(h) It has strong or special associations with a person, group, event, development or cultural phase in local or national history
The Fitters’ Workshop has the following associations of potential significance: • with it’s designer, John Smith Murdoch; • with the first phase of the development of Canberra as the national capital; • with the provision of industrial/engineering services for the capital; and • with industrial/engineering workers in Canberra.
Murdoch is arguably an important figure in Australia’s cultural history. He was an early and significant architect in the Commonwealth Government, including periods as Chief
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Architect, Department of Works and Railways (1919-29) and Director-General of Works (1927-29). Murdoch was responsible for the design and construction of many early Canberra buildings such as Old Parliament House, and for other significant Commonwealth buildings throughout Australia. (McDonald 1986)
Murdoch has a special association with Old Parliament House, and with East and West Blocks, being a crucial and prominent group of buildings in the development of both Canberra and the Parliamentary Zone. Murdoch was the principal designer for these buildings and Old Parliament House is arguably his most important work.
On current evidence, Murdoch’s role regarding the Fitters’ Workshop, or the place of this building in his body of work, do not appear to have been of such a character as to justify a claim for there being a special association. In his various roles with the Commonwealth, Murdoch was associated with many building projects, including as the principal designer for many buildings. The Workshop is not the earliest of Murdoch’s major designs for the Commonwealth (see for example the Commonwealth Offices at Treasury Place, Melbourne from 1912), nor is it the earliest in Canberra (see Old Canberra House from 1913). The Canberra Glassworks (the former Power House) also pre-dates the Workshop.
There must be a special quality to these associations beyond just that of architect.
On the other hand, the Workshop does seem to have a strong and special association with the first phase of the development of Canberra as the national capital, especially regarding the provision of industrial/engineering services. The Workshop was part of the earliest development phase for Canberra which began around 1911 and relatively few places survive from this phase. The Workshop was also an early major element in the Kingston industrial/engineering precinct, the Workshop operated in this role over decades, and again very few elements survive in this precinct. More broadly, there are still relatively few places in Canberra which reflect the early phase of the provision of industrial/engineering services for the city.
For similar reasons, the Workshop also has a strong and special association with industrial/ engineering workers in Canberra. As a group, such workers played an important role in the development and maintenance of Canberra. This role is little recognised and places with an early and lengthy association with such workers, such as the Workshop, are relatively rare.
(i) It is significant for understanding the evolution of natural landscapes, including significant geological features, landforms, biota or natural processes
There is no evidence of the place having value under this criterion.
(j) It has provided, or is likely to provide, information that will contribute significantly to a wider understanding of the natural or cultural history of the ACT because of its use or potential use as a research site or object, teaching site or object, type locality or benchmark site
The Fitters’ Workshop has value under this criterion although the level of value is not clear at this stage.
The potential historical subsurface deposits to the southeast of the current Fitters’ Workshop may provide information that will contribute to the wider understanding of the
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cultural history of the ACT through its potential use as a research site. The site may yield information about the industrial uses of the site, being part of the most important industrial complex in the early years of the national capital, and add to the knowledge of early industrial buildings in the ACT. However, significant research questions are yet to be developed, and the nature and condition of subsurface deposits are not yet proven.
The other major source of information about the site, documentary sources, are considered to be very scattered but reasonably good.
In this context, the subsurface deposits require further research before their value can be better defined.
No further assessment is required for Aboriginal cultural heritage relative to the Fitters’ Workshop.
(k) The place exhibits unusual richness, diversity or significant transitions of flora, fauna or natural landscapes and their elements
There is no evidence of the place having value under this criterion.
(l) The place is a significant ecological community, habitat or locality for any of the following: (i) the life cycle of native species; (ii) rare, threatened or uncommon species; (iii) species at the limits of their natural range; or (iv) distinct occurrences of species.
There is no evidence of the place having value under this criterion.
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Future Heritage Criteria - HERCON
The Council of Australian Governments (COAG) has agreed that the States and Territories will move progressively to the use of consistent heritage assessment criteria, known as the HERCON criteria. The ACT is likely to modify its criteria in line with HERCON following the review of the Heritage Act in 2010. The following table correlates the current ACT Heritage Criteria used above with the new HERCON criteria, to allow this assessment of significance to be more easily understood in the future.
Table 1. ACT Heritage Act Criteria correlated with the HERCON Criteria
HERCON Model Criteria ACT Heritage Criteria 2004
A place or object has heritage significance if it satisfies 1 or more of the following criteria (the heritage significance criteria): (a) Importance to the course or pattern of our (c) it is important as evidence of a distinctive way of cultural or natural history. life, taste, tradition, religion, land use, custom, process, design or function that is no longer practised, is in danger of being lost, or is of exceptional interest;
(h) it has strong or special associations with a person, group, event, development or cultural phase in local or national history;
(i) it is significant for understanding the evolution of natural landscapes, including significant geological features, landforms, biota or natural processes;
(k) for a place—it exhibits unusual richness, diversity or significant transitions of flora, fauna or natural landscapes and their elements;
(l) for a place—it is a significant ecological community, habitat or locality for any of the following: (i) the life cycle of native species; (ii) rare, threatened or uncommon species; (iii) species at the limits of their natural range; (iv) district occurrences of species. (b) Possession of uncommon rare or endangered (f) it is a rare or unique example of its kind, or is rare aspects of our cultural or natural history. or unique in its comparative intactness; (c) Potential to yield information that will (j) it has provided, or is likely to provide, information contribute to an understanding of our cultural or that will contribute significantly to a wider natural history. understanding of the natural or cultural history of the ACT because of its use or potential use as a research site or object, teaching site or object, type locality or benchmark site; (d) Importance in demonstrating the principal (g) it is a notable example of a kind of place of object characteristics of a class of cultural or natural and demonstrates the main characteristics of that kind; places or environments. (e) Importance in exhibiting particular aesthetic (b) it exhibits outstanding design or aesthetic qualities characteristics. valued by the community or a cultural group; (f) Importance in demonstrating a high degree (a) it demonstrates a high degree of technical or of creative or technical achievement at a creative achievement (or both), by showing qualities particular period. of innovation, discovery, invention or an exceptionally fine level of application of existing techniques or approaches; (g) Strong or special association with a (d) it is highly valued by the community or a cultural particular community or cultural group for group for reasons of strong or special religious,
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Table 1. ACT Heritage Act Criteria correlated with the HERCON Criteria
HERCON Model Criteria ACT Heritage Criteria 2004
social, cultural or spiritual reasons. This spiritual, cultural, educational or social associations; includes the significance of a place to Indigenous peoples as part of the continuing and (e) it is significant to the ACT because of its developing cultural traditions. importance as part of local Aboriginal tradition; (h) Special association with the life or works of (h) it has strong or special associations with a person, a person, or group of persons, of importance in group, event, development or cultural phase in local our history. or national history;
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6. STATEMENT OF SIGNIFICANCE
6.1 SIGNIFICANCE OF THE FITTERS’ WORKSHOP
References to criteria in this section relate to the ACT Heritage Register criteria (reproduced at Appendix D). The references are provided after the relevant text.
The Fitters’ Workshop from 1916 is significant for a range of reasons related to its architectural style, design and setting, as evidence of its historical use, and for its strong and special associations.
The Fitters’ Workshop displays a high degree of creative achievement by being a good and relatively rare early example of the Inter-War Stripped Classical style. It also provides evidence of a distinctive design which is both no longer practiced and of exceptional interest. In addition, the Workshop also has several qualities which contribute to its creative achievement, these being: • its impressive size both externally and internally; and • its setting and planned relationship to the Canberra Glassworks (the former Kingston Power House) which shares a similar architectural character.
(Criteria (a), (c), (f) and (g))
The Workshop is also evidence of a distinctive function which is no longer practiced and is of exceptional interest – the centralised government provision of workshop/industrial/ engineering services for the city of Canberra, as part of an overall planned approach to city development. The Workshop was one of a number of industrial/engineering workshops providing centralised government services in the early years of the development of the national capital, and is now one of only a few remaining examples.
As part of this function, the Workshop was also important in the training of apprentices who were essential in maintaining a skills base for the operation and maintenance of the Kingston Power House and other facilities over many years.
(Criterion (c))
The Fitters’ Workshop is a relatively rare example of an early twentieth century industrial/ engineering building in Canberra.
(Criterion (f))
The Workshop has a strong and special association with the first phase of the development of Canberra as the national capital, especially regarding the provision of industrial/ engineering services. The Workshop was part of the earliest development phase for Canberra which began around 1911 and relatively few places survive from this phase. The Workshop was also an early major element in the Kingston industrial/engineering precinct, the Workshop operated in this role over decades, and again very few elements survive in this precinct. More broadly, there are still relatively few places in Canberra which reflect the early phase of the provision of industrial/engineering services for the city. Fitters’ Workshop Conservation Management Plan Page 51
The Workshop also has a strong and special association with industrial/engineering workers in Canberra. As a group, such workers played an important role in the development and maintenance of Canberra. This role is little recognised and places with an early and lengthy association with such workers, such as the Workshop, are relatively rare.
(Criterion (h))
The Workshop may also meet other criteria related to: • outstanding design or aesthetic qualities valued by the community or a cultural group (Criterion (b)); and • being highly valued by the community or a cultural group for reasons of strong or special religious, spiritual, cultural, educational or social associations (Criterion (d)).
Such values may arise for the Workshop individually, or for the Workshop as part of a larger precinct. However, more detailed social value research is required to substantiate such values.
The potential archaeological remains to the southeast of the Fitters’ Workshop add to the significance of the site by providing a potential archaeological resource that may contribute to the understanding of the industrial uses of the site, being part of the most important industrial complex in the early years of the national capital, and add to the knowledge of early industrial buildings in the ACT. At this stage, the level of value is not clear, and the subsurface deposits require further research before their value can be better defined under Criterion (j).
6.2 ATTRIBUTES RELATED TO SIGNIFICANCE
Table 2. Attributes
Criterion Significance Attributes
Criterion (a), The Fitters’ Workshop from 1916 is significant for a • Architectural style: (c), (f) and range of reasons related to its architectural style, • symmetrical façade, (g) design and setting, as evidence of its historical use, noting the later change and for its strong and special associations. of one window in the northwestern elevation The Fitters’ Workshop displays a high degree of into a door thereby creative achievement by being a good and relatively reducing the symmetry rare early example of the Inter-War Stripped Classical • division into vertical style. It also provides evidence of a distinctive design bays indicating which is both no longer practiced and of exceptional classical origins interest. In addition, the Workshop also has several • vestigial classical qualities which contribute to its creative achievement, entablature or cornice these being: • simple surfaces • its impressive size both externally and • large, simple areas of internally; and glass • its setting and planned relationship to the • Impressive size Canberra Glassworks (the former Kingston • Setting and planned Power House) which shares a similar relationship to the Canberra architectural character. Glassworks Criterion (c) The Workshop is also evidence of a distinctive • Fitters’ Workshop function which is no longer practiced and is of • Remnant evidence of exceptional interest – the centralised government workshop/industrial/
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Table 2. Attributes
Criterion Significance Attributes
provision of workshop/industrial/engineering services engineering use for the city of Canberra, as part of an overall planned approach to city development. The Workshop was one of a number of industrial/engineering workshops providing centralised government services in the early years of the development of the national capital, and is now one of only a few remaining examples.
As part of this function, the Workshop was also important in the training of apprentices who were essential in maintaining a skills base for the operation and maintenance of the Kingston Power House and other facilities over many years. Criterion (f) The Fitters’ Workshop is a relatively rare example of • Fitters’ Workshop, an early twentieth century industrial/engineering especially industrial/ building in Canberra. engineering character Criterion (h) The Workshop has a strong and special association • Fitters’ Workshop, with the first phase of the development of Canberra as especially industrial/ the national capital, especially regarding the provision engineering character of industrial/engineering services. The Workshop was • Remnant evidence of part of the earliest development phase for Canberra workshop/industrial/ which began around 1911 and relatively few places engineering use survive from this phase. The Workshop was also an early major element in the Kingston industrial/ engineering precinct, the Workshop operated in this role over decades, and again very few elements survive in this precinct. More broadly, there are still relatively few places in Canberra which reflect the early phase of the provision of industrial/engineering services for the city.
The Workshop also has a strong and special association with industrial/engineering workers in Canberra. As a group, such workers played an important role in the development and maintenance of Canberra. This role is little recognised and places with an early and lengthy association with such workers, such as the Workshop, are relatively rare. Criterion (j) The potential archaeological remains to the southeast • Potential archaeological of the Fitters’ Workshop add to the significance of the remains to the southeast of site by providing a potential archaeological resource the Fitters’ Workshop that may contribute to the understanding of the industrial uses of the site, being part of the most important industrial complex in the early years of the national capital, and add to the knowledge of early industrial buildings in the ACT. At this stage, the level of value is not clear, and the subsurface deposits require further research before their value can be better defined under Criterion (j).
Note: The value under this criterion is yet to be proven but details are included consistent with a precautionary approach.
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7. DEVELOPMENT OF POLICY - OPPORTUNITIES AND CONSTRAINTS
7.1 IMPLICATIONS ARISING FROM SIGNIFICANCE
Based on the statement of significance presented in Chapter 6, the following management implications arise. Conserve the: • Fitters’ Workshop generally, especially its industrial/engineering character; • architectural style of the building, especially the: • symmetrical façade, noting the later change of one window in the northwestern elevation into a door thereby reducing the symmetry; • division into vertical bays indicating classical origins; • vestigial classical entablature or cornice; • simple surfaces; • large, simple areas of glass; • impressive size of the building, internally and externally; • setting and planned relationship to the Canberra Glassworks; • remnant evidence of workshop/industrial/engineering use; and • the potential archaeological remains to the southeast of the Fitters’ Workshop.
These implications do not automatically lead to a given conservation policy in Chapter 8. There are a range of other factors that must also be considered in the development of the policy, and these are considered in the rest of this chapter. Such factors may modify the implications listed above to produce a different policy outcome.
7.2 LEGISLATIVE REQUIREMENTS
The legislative and related requirements relevant to the Fitters’ Workshop relate to the: • Australian Capital Territory (Planning and Land Management) Act 1988 (Commonwealth); • National Capital Plan (Commonwealth); • ACT Planning and Development Act 2007 (ACT); • Territory Plan 2008 (ACT); • Heritage Act 2004 (ACT); and • Building Code of Australia.
The Australian Capital Territory (Planning and Land Management) Act 1988 and National Capital Plan provide the overarching framework for planning in the ACT. However, in practical terms it is the ACT planning and heritage provisions which are directly relevant. These are briefly outlined below.
ACT Planning and Development Act 2007 (ACT)
This is the principal planning and development Act for the Territory, aside from the National Capital aspects of the Territory. It provides a planning and land system for sustainable development of the ACT which is consistent with social, environmental and economic aspirations. The Act has no effect to the extent that it is inconsistent with the National Capital Plan, but is taken to be consistent with the plan to the extent that it can
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operate concurrently with it. (ACT Planning and Development Act 2007 (ACT), section 6)
The Act provides for the creation of the ACT Planning and Land Authority, and the Territory Plan which is discussed below.
Territory Plan 2008 (ACT)
General The plan is a statutory document which is: • a key part of the policy framework for administering planning in the ACT, particularly where the ACT Planning and Land Authority has decision-making roles; • used to manage development, in particular land use and the built environment; • used to assess development applications; and • is used to guide the development of new estate areas (future urban land), and the management of public land.
The Territory, the Executive, Ministers and Territory authorities must not do or give approval for anything that is inconsistent with the plan, nor the National Capital Plan (http://www.actpla.act.gov.au/tools_resources/legislation_plans_registers/plans/territory_pl an_master_page).
The Territory Plan (2010) operates in conjunction with the National Capital Plan.
Fitters’ Workshop The Workshop is on land with an overlay provision designating it as a Future Urban Area, and the principles and policies for the development of the land are set out in a separate Kingston Foreshore Structure Plan (ACTPLA 2010a). The plan is quite lengthy covering a range of development intentions, but key extracts are as follows.
One of the design objectives is,
‘To ensure that the heritage significance of the site is recognised and that in particular the Power House remains a landmark building.’ (ACTPLA 2010a, p. 3)
A general objective is to,
‘Reflect and celebrate the cultural significance of the site.’ (ACTPLA 2010a, p. 4)
General principles include,
‘The Power House precinct is to preserve and protect the heritage significant buildings and elements in a manner which encourages adaptive reuse, public access to, and experience and understanding of, the heritage significance of the place.’ (ACTPLA 2010a, p. 6)
The Workshop is in Precinct g and specific principles are,
‘(a) Preserve and protect the heritage significant building and elements in a manner which encourages adaptive reuse. (b) Provide opportunities for activities and facilities to be integrated with the historic building and setting of the Power House. (c) Promote public access to, and experience and understanding of, the heritage significance of the place. (d) Respect significant views to and from the Power House.’ (ACTPLA 2010a, p. 9)
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There are also a set of principles related to heritage,
‘6. Heritage:
(a) Ensure that the Kingston Power House Historic Precinct is conserved and appropriately maintained consistent with its heritage significance. Strongly reflect the cultural significance of the site as the historic commercial and industrial heart of Canberra in the urban design and presentation of the development. (b) Encourage public appreciation of the heritage values of the site through appropriate interpretation within the Kingston Power House Historic Precinct and in neighbouring precincts. (c) Promote the conservation, reinstatement, consolidation and interpretation of the historic fabric and encourage its adaptive reuse.’ (ACTPLA 2010a, p. 11)
The land is also designated CZ5 – Mixed Use Zone. The Territory Plan identifies zone objectives, the assessment track for types of development, and prohibited developments. The types of uses contemplated for the land including the Workshop include craft workshop, major utility installation, place of assembly, tourist facility (excluding a service station), drink establishment, indoor entertainment facility, light industry, and scientific research establishment.
There is also a Development Code for the Mixed Use Zone (ACTPLA 2010b). The code provides general development controls as well as site specific controls – the later including specific provisions for the Workshop locality.
Heritage Act 2004 (ACT)
This Act is the principal Territory heritage legislation. It provides a comprehensive system to conserve significant heritage places and objects in the ACT. The main elements of the Heritage Act include: • to establish a system for the recognition, registration and conservation of natural and cultural heritage places and objects, including Aboriginal places and objects; • to establish the heritage council as the key advisory body on heritage issues; • establish a more comprehensive and accessible Heritage Register with streamlined processes to nominate and register heritage places and objects; • to provide for heritage agreements to encourage conservation of heritage places and objects; • to provide for heritage guidelines to protect heritage significance; • to define obligations of public authorities to protect heritage; • establish enforcement and offence provisions to provide greater protection for heritage places and objects including Heritage Directions, Heritage Orders and Information Discovery Orders; and • to provide a more efficient system integrated with land planning and development to consider development applications having regard to the heritage significance of a place and heritage guidelines.
The Workshop has been entered on the ACT Heritage Register as part of the Kingston Powerhouse Historic Precinct, and accordingly it is subject to the protective provisions of the Act (see Appendix A for a copy of the precinct citation). In part, these provisions ensure heritage advice is provided to and considered by ACTPLA regarding any development applications affecting a registered place.
However, the current boundary of the precinct excludes the area to the southeast of the Workshop which was the location of former buildings associated with the Workshop, as
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well as the former railway platform to the southwest.
Figure 50. Plan of Kingston Powerhouse Historic Precinct Source: ACT Heritage Council
The range of statutory and non-statutory heritage listings relevant to the Workshop are detailed in the following table.
Table 3. Summary of Heritage Listings
Name of Place Status List or Register Heritage Body
Kingston Powerhouse Registered ACT Heritage Register ACT Heritage Council Historic Precinct Kingston Power House Registered Register of the National Commonwealth Estate Minister for the Environment, Heritage and the Arts Kingston Power House Classified List of Classified and National Trust of Recorded Places Australia (ACT)
Under the former legislation, ACT Heritage Register citations included specific requirements which were an important part of the protective provisions. In the case of the Kingston Powerhouse Historic Precinct, these are reproduced at Appendix A. Under the transitional arrangements to the current Heritage Act, these requirements were made heritage guidelines under the new Act (ACT Heritage Act 2004, section 129). Accordingly, functions undertaken under the Act must be done in accordance with these requirements/heritage guidelines, such as advice given by the Heritage Council on development applications. That is, the requirements/heritage guidelines continue to operate as protective provisions.
An obligation under the current Act for the Department as a public authority is to prepare a conservation management plan for the Kingston Powerhouse Historic Precinct if directed by the Heritage Council (ACT Heritage Act 2004, section 110).
Building Code of Australia
The Code is the definitive regulatory resource for building construction, providing a nationally accepted and uniform approach to technical requirements for the building industry. It specifies matters relating to building work in order to achieve a range of health and safety objectives, including fire safety.
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All building work at the Workshop should comply with the Code. However, given constraints provided by the existing heritage building, full compliance may not always be easy to achieve.
7.3 STAKEHOLDERS
There are a range of stakeholders with an interest in the Fitters’ Workshop. These are briefly discussed below. The Land Development Agency, within the ACT Department of Land and Property Services portfolio, is the Government owner of the Workshop and its role is discussed in Section 7.4 below.
Megalo Print Studio
Megalo is a member-based, visual arts organisation which provides artists and the broader community with access to specialised printmaking facilities and expertise. Megalo Print Studio is currently located in Watson and is funded by the ACT Government. The ACT Government has proposed the adaptive re-use of the Workshop to accommodate Megalo.
ACT Heritage Council/ACT Heritage
The role of the Heritage Council and ACT Heritage are addressed in the previous section regarding legislation.
National Trust of Australia (ACT)
The Trust is a community-based heritage conservation organisation. It maintains a register of heritage places, and generally operates as an advocate for heritage conservation. Listing on the Trust's register carries no statutory power, though the Trust is an effective public advocate in the cause of heritage.
The Trust has classified the Workshop as part of the Kingston Power House, as noted above. Accordingly, the Trust promotes the conservation of the Workshop and is vigilant for any proposals likely to impact on the heritage place.
Australian Institute of Architects (ACT Chapter)
The AIA is a professional non-government organisation concerned with architectural matters. The AIA, ACT Chapter’s Register of Significant Twentieth Century Architecture Committee has registered the Kingston Powerhouse, but not the Workshop. It has also registered the Old Bus Depot Markets (as the Kingston Transport Depot), and the statement of significance for this place includes reference to Workshop,
‘The Kingston Transport Depot is one of the last remnants of the early industrial/service complex at Kingston; the first intended permanent location for such uses in the development of Canberra. The Depot is accessible to the public and plays an important part, combining with the adjoining Powerhouse and Fitters Workshop, in augmenting the forecourt to the renewed Kingston foreshore industrial heritage precinct.’ (AIA 2010, p. 2)
The AIA is generally concerned for the conservation of architectural heritage, and at some future time the AIA may amend its existing registration or otherwise individually register the Workshop.
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Pro Musica
Pro Musica is a community organisation dedicated to fine music performance in Canberra. Its major activity is to organise the Canberra International Music Festival, first held in 1994 and an annual event since 1997. In 2010 Pro Musica used the Fitters’ Workshop as a venue for a series of live music performances.
In recent years Pro Musica has advocated the retention of the Workshop, in particular the large interior space, as a venue for music performance.
ACTEW
ACTEW Corporation Limited is a government owned company with assets and investments in water, wastewater, electricity, gas and telecommunications. It is the corporatised body that is the successor of previous agencies responsible for the ACT’s electricity and water services. In this way, it has historical links to the Fitters’ Workshop, and it owned the Workshop until the mid 1990s.
ACTEW retains some links to the Canberra Glassworks in the former Power House, and it is possible ACTEW may also have an ongoing general interest in the Workshop. However, this interest has not been tested.
7.4 MANAGEMENT CONTEXT, REQUIREMENTS AND ASPIRATIONS
General Context – Land Development Agency and the Kingston Foreshore
The Land Development Agency (LDA) sells and develops land on behalf of the ACT Government. The LDA is responsible for the Kingston Foreshore development which includes the Fitters’ Workshop. The development will result in the use of the Kingston Foreshore as a mixed use waterfront precinct with a strong arts, cultural, tourism and leisure theme. This will involve a mix of retail, commercial, residential and recreational areas while preserving the historical significance of the area. Substantial progress has been made with the overall development.
Current projects include masterplanning for the broader precinct including the Workshop, as well as detailed planning for the future of the Old Bus Depot Markets adjacent to the Workshop.
Fitters’ Workshop
The Fitters’ Workshop and all surrounding land considered in this study are ACT Government property which is managed by the LDA.
The ACT Government has decided the Workshop should be adapted to house the Megalo Print Studio. The ACT Department of Land and Property Services, which has portfolio responsibility for the LDA, is providing project facilitation to achieve this outcome. At this stage, funding is only available for planning work, and the ACT Government is yet to commit funds for construction.
Planning for the project is part way through a process and is not yet complete. Possible
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options to accommodate Megalo include: • a mezzanine structure inside the Workshop; • some compartmentalisation of the Workshop interior; and • construction of an addition/extension to the southeast of the Workshop to house functions related to Megalo’s operations.
One of the issues with the building is the highly reverberative acoustic of the interior, making it a very noisy space in which to try and work.
Once the project is complete, it is understood an occupancy agreement would be created between the ACT Government and Megalo to govern the ongoing use of the Workshop by Megalo. The ACT Property Group within the Department would become the ACT Government agency with oversight of the agreement. Day to day management would rest with Megalo including minor maintenance tasks, and the ACT Property Group would be responsible for all other building maintenance.
7.5 CONDITION AND INTEGRITY
This section begins with an overview of the condition and integrity of the Fitters’ Workshop. This is followed by a more detailed consideration of the state of the attributes of the place, comments about specific aspects, and finally summary information about condition and integrity issues.
Overview
In general terms, the condition of the Fitters’ Workshop is fair to good, and it displays a medium level of integrity. The loss of equipment related to its industrial/engineering use diminishes its integrity.
Condition and Integrity of Attributes
The following table provides a summary of the condition and integrity of the various attributes related to the significance of the Workshop.
In the table, condition relates to the state of the attribute, often the physical state – for example, an original gravel path which is badly eroded would be a condition issue. Integrity relates to the intactness of the attribute – for example a modern concrete path replacing an original gravel path might be an integrity issue irrespective of its condition. It is often useful to distinguish between these matters, especially as integrity relates closely to significance.
The attributes in the table are listed in the order derived from the statement of significance in Section 6.1.
Table 4. Condition and Integrity of the Attributes of the Fitters’ Workshop
Criteria Attributes Condition Integrity
Criterion (a), • Architectural style: • Fair-Good • High (c), (f) and (g) • symmetrical façade, noting the later change of one window in the northwestern elevation into a door thereby reducing the symmetry
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Table 4. Condition and Integrity of the Attributes of the Fitters’ Workshop
Criteria Attributes Condition Integrity
• division into vertical bays indicating classical origins • vestigial classical entablature or cornice • simple surfaces • large, simple areas of glass • Impressive size • Good • High • Setting and planned relationship to the Canberra • Good • High Glassworks Criterion (c) • Fitters’ Workshop • Fair-Good • Medium • Remnant evidence of workshop/industrial/ • Good • Low engineering use Criterion (f) • Fitters’ Workshop, especially industrial/ • Fair-Good • Medium engineering character Criterion (h) • Fitters’ Workshop, especially industrial/ • Fair-Good • Medium engineering character • Remnant evidence of workshop/industrial/ • Good • Low engineering use Criterion (j) • Potential archaeological remains to the southeast • Not known • Not of the Fitters’ Workshop known
Comments about Specific Aspects
Evidence of Engineering Use Most of the evidence of the use of the Fitters’ Workshop as an engineering workshop has been removed including most of the machinery. The overhead travelling crane has been modified to incorporate an electric hoist, but the rails, bridge and trolley appear to be in original condition and the endless chain drives for manual long and cross travel remain intact. Overall the crane is in good condition and highly intact.
Limited evidence of the mounting of line shafts for powering the floor mounted machine tools can be found on the walls, while the floor has been overlaid with an additional slab which covers any possible evidence of the footprint of the original machines.
A historic drill press in the adjacent Canberra Glassworks foyer is likely to be originally from the Fitters’ Workshop as it has pulleys for a belt drive from an overhead line shaft. It has been modified to incorporate an individual electric motor which might have been undertaken as part of shifting it for use in the former Power House in the 1960s when this building was partly used as a mechanical workshop.
Significance of Certain Changes and the Impact on Integrity A range of changes have been made to the building over time where the heritage value of the change is not entirely clear and this has consequences for assessing the impact on the integrity of the Workshop. These changes include: • covering the louvre windows; • fixing the awning(?) windows shut; • creating a doorway in the northwest elevation in the location of a former window, and converting a doorway in the southwest elevation into a window; • enlarging doorways; • installing a ceiling in 1956; • installing a new slab floor over the old floor; • installing an electric hoist on the crane; and • closing up former doorways in the southeast wall. Fitters’ Workshop Conservation Management Plan Page 61
In all cases these changes are part of the story of the Workshop, and they may be evidence which is of heritage value. In these cases a cautious approach seems warranted, especially as some of the changes are known to be relatively old, and it is best to assume they have some heritage significance.
Archaeological Deposits The condition and integrity of any potential subsurface historical archaeological deposits associated with the Fitters’ Workshop is unknown at this time.
Condition and Integrity Issues
The following table provides a summary of condition and integrity issues.
Table 5. Condition and Integrity Issues
Feature Summary Issues Condition (C) or assessment of Integrity (I) Condition and Issue Integrity
Walls Fair-Good/High • Some cracking possibly exposing reinforcing C Roughcast Good/Medium • The re-application of roughcast has been I on northeast applied to areas originally smooth rendered, elevation ie. the cornice/string course and roundels Wall finish – Fair-Good/ • The central section of the elevation which I southeast Medium? appears intended for a roughcast finish has elevation not been finished Downpipes Good/Low • The downpipes are not an accurate I reconstruction of the original roof plumbing Electrical Good/Low • The boards are prominently mounted on the I distribution northeast face of the building boards Concrete Fair-Good/? • Cracking evident C floor Evidence of Good/Low • Little evidence remains – the overhead crane I engineering and scars in the render of the line shaft and use other features • Drill press in the Canberra Glassworks’ foyer I appears to be originally from the Fitters’ Workshop
7.6 ISSUES RELATED TO THE BROADER PRECINCT
The Fitter’s Workshop sits within a broader precinct which includes two other substantial buildings from the early period of industrial/engineering activity in Kingston – the Canberra Glassworks (former Kingston Power House) and the Old Bus Depot Markets (former Kingston Transport Depot). Related to these are other, more subtle remains – the railway alignments/embankments either side of the Workshop, and the railway platform wall to the southwest of the Workshop.
The Workshop is also within a formal heritage precinct, the Kingston Powerhouse Historic Precinct which is on the ACT Heritage Register.
There is a clear planning and visual/architectural relationship with the Canberra
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Glassworks. The relationship with the Markets is also related to planning, at least in retaining the same orientation. All of the buildings share historical connections through their use.
The ACT Heritage Council has previously identified the importance of the visual corridor extending between the Glassworks and the Workshop.
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8. CONSERVATION POLICY AND IMPLEMENTATION STRATEGIES
8.1 OBJECTIVE
The objective of this policy is to achieve the conservation of the cultural heritage significance of the Fitters’ Workshop including its setting, possible archaeological deposits to the southeast of the building, and its relationship with the Canberra Glassworks (former Kingston Power House).
8.2 DEFINITIONS
The definitions for terms used in this report are those adopted in The Burra Charter, The Australia ICOMOS Charter for places of cultural significance (Australia ICOMOS 2000), a copy of which is provided at Appendix G. Key definitions are provided below.
Place means site, area, land, landscape, building or other work, group of buildings or other works, and may include components, contents, spaces and views.
Cultural significance means aesthetic, historic, scientific, social or spiritual value for past, present or future generations. Cultural significance is embodied in the place itself, its fabric, setting, use, associations, meanings, records, related places and related objects.
Fabric means all the physical material of the place including fixtures, contents and objects.
Conservation means all the processes of looking after a place so as to retain its cultural significance [as listed below].
Maintenance means the continuous protective care of the fabric, and setting of a place, and is to be distinguished from repair. Repair involves restoration or reconstruction.
Preservation means maintaining the fabric of a place in its existing state and retarding deterioration.
Restoration means returning the existing fabric of a place to a known earlier state by removing accretions or by reassembling existing components without the introduction of new material.
Reconstruction means returning a place to a known earlier state and is distinguished from restoration by the introduction of new material into the fabric.
Adaptation means modifying a place to suit the existing use or a proposed use. [Article 7.2 states regarding use that: a place should have a compatible use]
Compatible use means a use which respects the cultural significance of a place. Such a use involves no, or minimal impact on cultural significance.
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8.3 CONSERVATION MANAGEMENT POLICY AND IMPLEMENTATION STRATEGIES
Table 6. Policy and Strategy Index
Number Policy Title Strategies
General Policies Policy 1 Significance the basis for planning, management and work Policy 2 Adoption of Burra Charter Policy 3 Adoption of policies Policy 4 Planning documents for or relevant to the Fitters’ Workshop Policy 5 Compliance with legislation 5.1 Copy of CMP for the ACT Heritage Council 5.2 Reconciling the CMP with the ACT Heritage Register citation Policy 6 Expert heritage conservation advice Policy 7 Decision making process for works or 7.1 Decision making process actions Policy 8 Review of the conservation management plan
Training, Consultation and Liaison Policy 9 Training Policy 10 Relationship with the ACT Heritage Policy 11 Information about proposed works
Conservation of the Building Policy 12 Conservation of Building Fabric 12.1 Render finish 12.2 Overhead travelling crane Policy 13 Maintenance planning and works 13.1 Maintenance plan 13.2 Maintenance informed by monitoring 13.3 Addressing maintenance and repair issues Policy 14 Upgrading and adaptation works 14.1 New lighting and the overhead travelling crane Policy 15 Condition monitoring 15.1 Monitoring program 15.2 Reporting by maintenance contractors
Historical Archaeology Policy 16 Development or works southeast of the Workshop
Landscape of the Building Policy 17 Conservation of historical features Policy 18 Conservation of the landscape
Setting Policy 19 Setting
Use of the Place Policy 20 Use of the Fitters’ Workshop Building 20.1 Lease or occupancy agreements 20.2 Crane use Policy 21 Use of the Landscape surrounding the Fitters’ Workshop
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Table 6. Policy and Strategy Index
Number Policy Title Strategies
New Development Policy 22 New buildings Policy 23 New landscaping
Interpretation Policy 24 Interpretation of the significance of the 24.1 Interpretive strategy Fitters’ Workshop
Unforeseen Discoveries Policy 25 Unforeseen discoveries or disturbance of heritage components
Keeping Records Policy 26 Records of intervention and maintenance 26.1 Records about decisions 26.2 Maintenance and monitoring records
Further Research Policy 27 Addressing the limitations of this conservation management plan
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General Policies
Policy 1 Significance the basis for planning, management and work The statement of significance set out in Chapter 6 will be a principal basis for future planning, management and work affecting the Fitters’ Workshop.
Policy 2 Adoption of Burra Charter The conservation and management of the Workshop, its fabric and uses, will be carried out in accordance with the principles of The Burra Charter (Australia ICOMOS 2000), and any revisions of the Charter that might occur in the future.
Policy 3 Adoption of policies The policies recommended in this conservation management plan will be endorsed as a primary guide for management as well as future planning and work for the Fitters’ Workshop.
Policy 4 Planning documents for or relevant to the Fitters’ Workshop All planning documents developed for or relevant to the Fitters’ Workshop will refer to this conservation management plan as a primary guide for the conservation of its heritage values. The direction given in those documents and in this plan will be mutually compatible.
Commentary: Other currently known planning documents include a master plan for the general area including the Workshop. It is possible the conservation management plan for the Old Bus Depot Markets may also be relevant.
Policy 5 Compliance with legislation The Land Development Agency, ACT Department of Land and Property Services and any future occupiers of the Workshop must comply with all relevant legislation and related instruments as far as possible, including the: • ACT Planning and Development Act 2007 (ACT); • Territory Plan 2008 (ACT); • Heritage Act 2004 (ACT); and • Building Code of Australia.
Commentary: This includes the need to seek relevant approvals for changes impacting on the heritage values of the Workshop.
Implementation strategies
5.1 The LDA will provide a copy of this plan to the ACT Heritage Council.
5.2 The LDA will seek to have the heritage assessment and heritage guidelines in the ACT Heritage Register citation reconciled with this conservation management plan.
Commentary: In the currently available citation, the heritage guidelines are actually called specific requirements which is the former statutory term no longer used.
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Policy 6 Expert heritage conservation advice People with relevant expertise and experience in the management or conservation of heritage properties will be engaged for the: • provision of advice on the resolution of conservation issues; and • for advice on the design and review of work affecting the significance of the Fitters’ Workshop.
Commentary: If needed, ACT Heritage may be able to advise about suitable experts.
Policy 7 Decision making process for works or actions The Land Development Agency, ACT Department of Land and Property Services and any future occupiers of the Workshop will ensure that they have an effective and consistent decision-making process for works or actions affecting the Workshop which takes full account of the heritage significance of the place. All such decisions will be suitably documented and these records kept for future reference.
Implementation strategies
7.1 The process will involve: • consultation with internal and external stakeholders relevant to the particular decision; • an understanding of the original design and subsequent changes to the area involved; • documentation of the proposed use or operational requirements justifying the works or action; • an assessment of the impact on significance; and • identification of relevant statutory obligations and steps undertaken to ensure compliance.
Policy 8 Review of the conservation management plan This conservation management plan will be reviewed: • to take account of new information and ensure consistency with current management circumstances every five years; or • whenever major changes to the place are proposed or occur by accident (such as fire or natural disaster); or • when the management environment changes to the degree that policies are not appropriate to or adequate for changed management circumstances.
Training, Consultation and Liaison
Policy 9 Training Adequate training for ACT Department of Land and Property Services staff and any future occupiers of the Workshop will be provided regarding the significance of the Workshop, and the policies and practices for its appropriate management.
Policy 10 Relationship with the ACT Heritage The ACT Department of Land and Property Services will maintain regular
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contact with ACT Heritage, including informal consultations where appropriate.
Commentary: ACT Heritage administers the Heritage Act 2004 (ACT) and provides the secretariat for the ACT Heritage Council. Early consultation can simplify and speed any approvals needed under the Act.
Policy 11 Information about proposed works Stakeholders and the public will be informed in a timely fashion, as appropriate, about proposals for works or programs within or affecting the Fitters’ Workshop.
Commentary: A list of stakeholders is provided in Section 7.3. This policy is in addition to the formal requirements to notify agencies such as ACTPLA and the ACT Heritage Council.
Conservation of the Building
The policies in this section apply to the building only. Refer also to the policy section on new development below.
Policy 12 Conservation of Building Fabric Fabric related to the Inter-War Stripped Classical style will be conserved. Key and other features of the Workshop which express the style include: • symmetrical façade, accepting the later change of one window in the northwestern elevation into a door thereby reducing the symmetry; • division into vertical bays indicating classical origins; • vestigial classical entablature or cornice; • simple surfaces; and • large, simple areas of glass.
Additional qualities or features to be conserved include: • the Workshop’s impressive size both externally and internally; • the careful contrast in render finish (roughcast and smooth) between elements of the façade; • the scars and other evidence in the southeast wall of former structures attached to the Workshop; • the overhead travelling crane; and • the setting and planned relationship to the former Kingston Power House.
Implementation Strategies
12.1 With regard to the render finish: • the concrete wall on the southeast side will remain unrendered; and • the smooth render finish below the window in the southwest elevation will remain a smooth finish, not roughcast.
Commentary: While part of the southeast wall appears originally to have been intended for a roughcast finish, this apparently was never undertaken. Given the very long period it has been unrendered, it should
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remain so. The render below the window relates to the conversion of a former doorway into the current window. As such, retaining the smooth finish helps identify this change.
12.2 If the overhead travelling crane cannot be actively used, it should be disabled in a reversible way but otherwise left in location.
Commentary: The current proposal for re-using the Fitters’ Workshop has no need or capacity to re-use the crane.
Policy 13 Maintenance planning and works The Workshop will be well maintained and all maintenance and repair work will respect the significance of the place. Maintenance and repair will be based on a maintenance plan that is informed by: • a sound knowledge of each part of the building, its materials and services and their heritage significance; and • regular inspection/monitoring.
It will also include provision for timely preventive maintenance and prompt repair in the event of breakdown.
Implementation Strategies
13.1 The ACT Department of Land and Property Services will develop a maintenance plan for the Workshop, including provisions for life-cycle maintenance.
13.2 The Authority will ensure maintenance planning is periodically informed by a monitoring program (refer to Policy 15).
13.3 Maintenance planning will be reviewed by the ACT Department of Land and Property Services for opportunities to address the maintenance and repair issues listed at Appendix E.
Policy 14 Upgrading and adaptation works The ACT Department of Land and Property Services may replace or upgrade fabric and services, or undertake adaptation works as required by their condition or changed standards. Such works will not compromise significance unless there is no feasible and prudent alternative, in which case every effort will be made to minimise the impact on significance.
Adaptation may also be undertaken to allow for a new use for the Workshop which is compatible with its significance.
Commentary
Adaptation in this plan involves no, or minimal impact on significance, in accordance with The Burra Charter.
As noted in Section 7.4, there is a current proposal to adapt the Workshop for use as the Megalo Print Studio. This may include installing a mezzanine structure within the building. It is noted the acoustic problems of the interior
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may require treatment as part of adaptation.
14.1 Any new lighting installed inside the workshop should not interfere with the possible use or travel of the overhead travelling crane.
Policy 15 Condition monitoring A program of monitoring of the condition of fabric will be implemented. This program will be distinct from the maintenance program but will be linked to it for implementation. The information gained will identify areas experiencing deterioration, which will in turn inform maintenance planning.
Implementation Strategies
15.1 The ACT Department of Land and Property Services will develop and implement a monitoring program to identify changes in the condition of the place.
15.2 Mechanisms will be put in place to ensure timely reporting by any maintenance contractors to a coordinating officer with overall responsibility for the maintenance of the Workshop.
Historical Archaeology
Policy 16 Development or works southeast of the Workshop If development and/or site management works are proposed for the area to the southeast of the Fitters’ Workshop then further historical archaeological assessment will be conducted in this area.
The assessment will include a program of archaeological subsurface testing and/or remote sensing in the identified areas of archaeological potential (see Figure 51 below) to determine the presence or absence of subsurface cultural material, assess significance and inform management decisions.
Commentary: This area is the location of former buildings associated with the Fitters’ Workshop. Some of the buildings date from slightly earlier than the Workshop itself.
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Figure 51. Area of Archaeological potential – Fitters’ Workshop Source: Base image Google Earth
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Landscape of the Building
The policies in this section apply to remainder of the study area land outside of the Workshop building. See the following figure. The possible archaeological deposits are discussed above.
Figure 52. Conservation Management Plan Boundary Source: Base image Google Earth
Fitters Workshop
Policy 17 Conservation of historical features Historical features within the study area will be conserved including the railway alignments/embankments either side of the Workshop, and the railway platform wall to the southwest of the Workshop. Historical ground level changes associated with the railway lines will be conserved.
Policy 18 Conservation of the landscape The landscape areas surrounding the Workshop will be treated in the following ways: • northwest – should remain open to allow views to the Workshop, with no plantings or structures, and a hard landscape finish sympathetic to the earlier industrial/engineering character of the precinct; • northeast – generally as for northwest above – may include a more accurate reconstruction or at least revised interpretation of the former railway line; • southeast – may remain as an open area or include new structures. If the area remains open, a range of surface treatments may be possible depending on use. However, opportunities to interpret the former layouts of buildings should be undertaken if possible. If structures are proposed, these will be consistent with the policies provided below under New Development; and • southwest – generally as for northwest above.
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Setting
The policies in this section apply to the area around the Fitters’ Workshop beyond the boundary of the study area. See the figure above.
Policy 19 Setting The Land Development Agency will maintain an appropriate setting for the Fitters’ Workshop which: • conserves the Kingston Powerhouse Historic Precinct, being a place on the ACT Heritage Register; • respects the planned relationship with the Canberra Glassworks; • respects the planning relationship with the Old Bus Depot Markets; and • is sympathetic to the earlier industrial character of the area.
Use of the Place
Policy 20 Use of the Fitters’ Workshop Building The primary use of the Fitters’ Workshop will be sympathetic to the industrial/ engineering character of the building.
Commentary
Ancillary or secondary uses which support the primary use may not be sympathetic, but should be relatively limited in extent (eg. office space or toilets).
The current proposal to use the building as a working print studio would seem to be a sympathetic use, subject to a detailed understanding of what such a use would mean for the building.
Implementation Strategies
20.1 Any lease or occupancy agreement for the Workshop will highlight the heritage significance of the place and recognise this conservation management plan.
20.2 The overhead travelling crane should be used.
Commentary: The current proposal for re-using the Fitters’ Workshop has no need or capacity to re-use the crane.
Policy 21 Use of the Landscape surrounding the Fitters’ Workshop The landscape areas surrounding the Workshop will be used in the following ways: • northwest – no permanent uses although temporary activities may be possible; • northeast – generally as for northwest above, as well as interpretation of the former railway line; • southeast – this area may be used as open space or a combination of open space and new development (see the following policy section), ideally including interpretation of the former structures; and • southwest – generally as for northeast above.
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New Development
The following policies apply within the study area for this conservation management plan.
Policy 22 New buildings No new buildings will be constructed within the study area to the southwest, northwest or northeast of the Fitters’ Workshop building.
New buildings may be erected to the southeast of the Fitters’ Workshop subject to the following: • protection of potential archaeological deposits – refer to Policy 16; • location – new buildings will generally echo the footprint of one of the previous historical buildings in this area. These buildings extended southeast of the Workshop in the form of wings parallel to the railway lines either side of the Workshop. The central section of the southeast elevation will be left open to view; • general character – while new buildings may adopt a modern character, they should have an industrial character sympathetic to the history of the area; • form – new buildings should consider echoing the form of previous historical buildings in the area; • colours – new buildings will generally have subdued or muted colours consistent with an industrial character, although minor use of stronger colours as an accent may be acceptable; and • connection to the Fitters’ Workshop – the connection of any new building to the Workshop will have minimal impact on the fabric of the Workshop. The evidence/scars of former structures in the southeast wall will be preserved. There will be a distinct visual break in the elevation between the Workshop and any new buildings. Former doorways in the southeast wall of the Workshop may be re-opened to achieve access between the existing and any new buildings.
Commentary: Given the potential for significant archaeological deposits in the area southeast of the Workshop, this may lead to careful consideration of the design and construction of footings for any new buildings.
Policy 23 New landscaping New landscaping may be undertaken in the study area to the southwest and southeast of the Fitters’ Workshop.
The southwest area landscaping should be a hard landscape finish sympathetic to the earlier industrial/engineering character of the precinct. Care should be taken to preserve the former railway platform wall.
In the southeast area a range of surface treatments may be possible depending on use. However, opportunities to interpret the former layouts of buildings should be undertaken if possible.
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Interpretation
Policy 24 Interpretation of the significance of the Fitters’ Workshop The significance of the Workshop will be interpreted to the general public visiting the area as well as visitors to and the occupiers of the building itself. Such interpretation might best be coordinated with other interpretation in the vicinity, such as that for the Canberra Glassworks and the Old Bus Depot Markets.
Commentary: Other interpretation in the vicinity includes Canberra Tracks interpretive signage already installed on site.
Implementation Strategies
24.1 The Land Development Agency or ACT Department of Land and Property Services, in conjunction with the building occupants, will develop and implement a simple interpretive strategy considering the range of possible messages, audiences and communication techniques. This should ideally be integrated with other interpretation in the area.
Commentary: Some interpretation should be possible in the interior of the building notwithstanding possible future uses. In particular, interpretation might focus on: • the engineering use of the building, and machinery which is no longer present; • highlighting the scars of former machinery and openings found in the walls; and • investigating the possible relocation to the Workshop of the drill press currently in the Canberra Glassworks, possibly with a reconstructed section of line shaft.
Unforeseen Discoveries
Policy 25 Unforeseen discoveries or disturbance of heritage components If the unforeseen discovery of new evidence or the unforeseen disturbance of heritage fabric or values requires major management or conservation decisions not envisaged by this conservation management plan, the plan will be reviewed and revised (see Policy 8).
If management action is required before the plan can be revised, a heritage impact statement will be prepared that: • assesses the likely impact of the proposed management action on the existing assessed significance of the place; • assesses the impact on any additional significance revealed by the new discovery; • considers feasible and prudent alternatives; and • if there are no such alternatives, then considers ways to minimise the impact.
If action is required before a heritage impact statement can be developed, the Land Development Agency or ACT Department of Land and Property Services
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will seek relevant expert heritage advice before taking urgent action.
Urgent management actions shall not diminish the significance of the place unless there is no feasible and prudent alternative.
Commentary
Unforeseen discoveries may be related to location of new documentary or physical evidence about the place or specific heritage values that are not known at the time of this plan, and that might impact on the management and conservation of the place. Discovery of new heritage values, or the discovery of evidence casting doubt on existing assessed significance would be examples. This might relate to a range of values.
The potential archaeological deposits to the southeast of the Workshop are an obvious case that might fall under this policy.
Discovery of potential threats to heritage values may also not be adequately canvassed in the existing policies. Potential threats might include the need to upgrade services or other operational infrastructure to meet current standards, the discovery of hazardous substances that require removal, or the physical deterioration of fabric.
Unforeseen disturbance might be related to accidental damage to fabric, or disastrous events such as fire or flood.
Keeping Records
Policy 26 Records of intervention and maintenance The ACT Department of Land and Property Services will maintain records related to any substantial intervention or change in the place, including records about maintenance.
Implementation strategies
26.1 The Department will retain records relating to decisions taken in accordance with Policy 7 - Decision making process for works or actions.
26.2 The Department will retain copies of all maintenance plans prepared for the place, including superseded plans, and records about monitoring. (Refer to Policy 15)
Further Research
Policy 27 Addressing the limitations of this conservation management plan Opportunities to address the limitations of this plan (see Section 1.4) will be taken if possible, and the results used to revise the conservation management plan.
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9. BIBLIOGRAPHY
General
ACT Heritage nd, ACT Government Agency Heritage Guide for Compliance with ACT Heritage Legislation.
ACT Heritage Council 2010, Former Transport Depot, Wentworth Avenue, Kingston, ACT Heritage Register citation.
ACT Planning and Land Authority [ACTPLA] 2010a, Structure Plan, Kingston Foreshore.
ACT Planning and Land Authority 2010b, CZ5 Mixed Use Zone, Development Code.
ACTEW, Files: G64/14, part 3; and G83/385/1.
Apperly R, R Irving and P Reynolds 1989, A pictorial guide to Identifying Australian Architecture, Angus & Robertson.
Australia ICOMOS 2000, The Burra Charter, The Australia ICOMOS Charter for places of cultural significance, Australia ICOMOS.
Australian Archaeological Survey Consultants (AASC) 2002 Proposed Fyshwick Effluent Rising Main Replacement: Cultural Heritage Assessment, Test Pitting. Report to ActewAGL Water Division.
Australian Archaeological Survey Consultants (AASC) and Cultural Heritage Management Australia (CHMA) 2008 Jerrabomberra Wetlands Cycle Path Cultural Heritage Assessment. Report to SMEC Pty Ltd.
Australian Institute of Architects (ACT Chapter) [AIA] 2010, Heritage nomination of Kingston Bus Depot (Kingston Transport Depot), Wentworth Avenue, Kingston, ACT, nomination for the ACT Heritage Register.
Binns, K. 1938 Handbook for Canberra Prepared for the Members of the ANZAAS on the occasion of its meeting held in Canberra, January, 1939. Commonwealth Govt Printer.
Bluett, W. P. 1954 The Aborigines of the Canberra District at the Arrival of White Man. Manuscript held at the Library of the Australian Institute of Aboriginal and Torres Strait Islander Studies.
Canberra Times, various issues: 13 August 1929, p. 1; 30 April 1942, p. 4; 27 February 1952, p. 2; and 4 July 2009.
English, W. B. 1985 Where the Molonglo Runs. Unpublished BA(Hons) Thesis, Department of Prehistory and Anthropology, Australian National University, Canberra, ACT.
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Federal Capital Advisory Committee [FCAC], Construction of Canberra. First General Report, 18 July 1921.
FCAC, Construction of Canberra. Second General Report, 31 July 1922.
Federal Capital Commission [FCC], First Annual Report of the Federal Capital Commission for the Year ended 30th June, 1925.
FCC, Second Annual Report of the Federal Capital Commission for the Period ended 30th June, 1926.
FCC, Third Annual Report of the Federal Capital Commission for the Year ended 30th June, 1927.
FCC, Fourth Annual Report of the Federal Capital Commission for the Year ended 30th June, 1928.
FCC, Fifth Annual Report of the Federal Capital Commission for the Year ended 30th June, 1929.
FCC, Sixth and Final Report of the Federal Capital Commission for the Ten Months ended 30th April, 1930.
Flood, J. 1980 The Moth Hunters. Australian Institute of Aboriginal Studies, Canberra.
Freeman Collett & Partners 1993, Kingston Power House Precinct, Kingston ACT, conservation and management plan, prepared for ACT Electricity & Water.
Godden Mackay Logan Heritage Consultants (GML) 2009 Lake Burley Griffin Heritage Assessment Report prepared for the National Capital Authority (with contributions on Indigenous cultural heritage by Navin Officer Heritage Consultants).
Horton, D. 1999 Map of Aboriginal Australia - part of The Encyclopaedia of Aboriginal Australia. AIATSIS.
Huys, S. and D. Johnston (Australian Archaeological Survey Consultants Pty Ltd) 1997. An Aboriginal Archaeological Investigation of Lower Acton Peninsula including consultation with the Ngun(n)awal Aboriginal community regarding the heritage of the study area. Report prepared for the National Environmental Consulting Services (NECS), Canberra ACT. p.8, 17.
Institution of Engineers, Australia 1928, ‘Description of the Mechanical Plant used by the Federal Capital Commission’ in Quarterly Bulletin, 30 April 1928, p. 128.
Jones, H A, ‘Electricity’, in Alan Fitzgerald (ed.), Canberra’s Engineering Heritage, Canberra Division, Institution of Engineers, Australia, 1983, p. 139.
Kinsela, W. H. P. 1934 Observations of the Goulburn and Canberra Districts. Mankind 1(8):204-205.
Klaver, J. 1993 The Known Aboriginal Archaeological Resource Murrumbidgee River Corridor. Report prepared for David Hogg Pty Ltd by Navin Officer Archaeological
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Resource Management.
Land Development Agency, ‘Project History’ of the Kingston Foreshore Development at http://www.lda.act.gov.au/?/foreshore/index.
Mathews, R. H. 1900 The Gundungurra grammar. In The organisation, language, and initiation ceremonies of the Aborigines of the south-east coast of NSW in Royal Society of NSW Journal and Proceedings, vol. 34:262-281.
Mathews, R. H. 1901 The Gundungurra language, American Philosophical Society Proceedings, vol. 40 no 167:140-148.
Mathews, R. H. 1904 The Ngunawal language, in The Wiradyuri and other languages of NSW. In Anthropological Institute of Great Britain and Ireland Journal, vol 33: 294-299.
McDonald, D I 1986. ‘Murdoch, John Smith (1862-1945)’, Australian Dictionary of Biography, Melbourne University Press, Vol 10: 621-622.
Moss, H. P. 1939 Evidence of Stone Age Occupation of the Australian Capital Territory. ANZAAS 24:163-166.
Navin Officer Heritage Consultants 2001 Residential Re-Development at Royal Military College of Australia Duntroon, ACT. Report to Defence Housing Authority.
Navin Officer Heritage Consultants (NOHC) 2002 Proposed Fyshwick Effluent Rising Main Replacement, Fyshwick-Kingston, ACT. Cultural Heritage Assessment. Report to ActewAGL Water Division.
Navin Officer Heritage Consultants (NOHC) 2005a East Lake Urban Design Study, Canberra, ACT. Desktop Review of Cultural Heritage. Report to Redbox Design Group.
Navin Officer Heritage Consultants (NOHC) 2005b Morshead Drive and Pialligo Ave Duplication Cultural Heritage Assessment. Report to SMEC.
Navin Officer Heritage Consultants (NOHC) 2006a Lake Burley Griffin, Canberra ACT, Heritage Assessment, Indigenous Heritage Component. Report to Godden Mackay Logan.
Navin Officer Heritage Consultants 2006a Lake Burley Griffin ACT: Heritage Management Plan Indigenous Heritage Component. Report to Godden Mackay Logan.
Navin Officer Heritage Consultants (NOHC) 2006b Questacon Expansion Project, Cultural Heritage Assessment. Report to Ranbury Management Group Pty Ltd.
Navin Officer Heritage Consultants (NOHC) 2006c Kingston Powerhouse Original Railway Lines. Archival Recording. Report to the ACT Land Development Agency.
Navin Officer Heritage Consultants (NOHC) 2007 Heritage Significance Assessment- Stockpile of Original, Disused Railway Lines, Kingston Powerhouse, ACT.
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Navin Officer Heritage Consultants (NOHC) 2007-2008 Historical Heritage Significance Assessments - Kingston Foreshore Harbour Development. Reports to ACT Land Development Agency.
Navin Officer Heritage Consultants (NOHC) 2008a Royal Military College of Australia (RMC-A) Duntroon ACT. Heritage Management Plan - Aboriginal Cultural Heritage. Report to Godden Mackay Logan Pty Ltd.
Navin Officer Heritage Consultants (NOHC) 2008b Morshead Drive and Pialligo Avenue Upgrade, ACT Archaeological Subsurface Testing of MRPAD2 and MRPAD4. Report to SMEC.
Navin Officer Heritage Consultants (NOHC) 2008c Morshead Drive and Pialligo Avenue Upgrade, ACT Additional Archaeological Subsurface Testing of MRPAD4 (Site MRA2). Report to SMEC.
Navin Officer Heritage Consultants (NOHC) 2008d Proposed Construction Compound and Storage Area Morshead Drive and Pialligo Avenue Upgrade .Aboriginal Archaeological Assessment. ). Report to SMEC.
Navin Officer Heritage Consultants (NOHC) 2009 East Lake Electrical Infrastructure Implementation Project, ACT. Cultural Heritage Assessment. Report to Purdon Associates.
Navin Officer Heritage Consultants (NOHC) 2010a Fyshwick Road Network Feasibility Study Cultural Heritage Desktop Review Report to URS Australia.
Navin Officer Heritage Consultants (NOHC) 2010b East Lake Electrical Infrastructure Implementation Project, ACT. Proposed Underground Transmission Cable Route Option Eleven Jerrabomberra Wetlands Nature Reserve, ACT. Archaeological and Geomorphological Subsurface Testing Program. Report to Purdon Associates.
Officer, K. L. C. 1989 Namadgi Pictures: The Aboriginal rock art sites within the Namadgi National Park, ACT. Report to ACT Administration, Heritage Unit, and the ACT Parks and Conservation Service.
Officer, K. 1995 Aboriginal Archaeological Survey Proposed Nursery and Depot Complex, Australian National Botanic Gardens, Canberra, ACT. Report to National Botanic Gardens.
O’Keefe, Brendan, ‘History of the Kingston Power House’, May 1993.
Opick, A. A. 1958 The geology of the Canberra City District. Bur. Miner. Resources. Aust. Bull. 32.
Peter Freeman Pty Ltd 2001, Kingston Power House Precinct, Kingston, ACT, Conservation Management Plan Review 2001, 2 volumes.
Queanbeyan Age and Queanbeyan Observer, various issues: 11 August 1916, p. 2; 24 April 1917, p. 2; and 25 April 1922, p. 2.
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Reid, Paul, Canberra following Griffin: A design history of Australia’s national capital, Canberra, National Archives of Australia, 2002.
Report of the Royal Commission of Federal Capital Administration, 1917.
Robinson, F. W. 1927 Canberra’s First Hundred Years and After. Penfold, Sydney, 2nd Edition.
Schumack, J. E. and S. 1967 An Autobiography, or Tales and Legends of Canberra Pioneers. (Edited by L. F. Fitzhardinge), ANU press, Canberra.
Territory Plan 2010, available at www.legislation.act.gov.au/ni/2008%2D27/current/
The Chronicle, 19 May 2009, p. 5.
Tindale, N. B. 1974 The Aboriginal Tribes of Australia ANU Press, Canberra.
Trudinger, P. 1989 Confounded by Carrots. Unpublished Litt.B thesis. Department of Prehistory & Anthropology, ANU.
Woolnough, W. G. 1938 Geology and Physiography of the Australian Capital Territory and Surrounding Areas in Handbook for Canberra ANZAAS.
National Archives of Australia Records
Minute, Director-General of Works to Secretary, Department of Home Affairs, ‘Electrical Store Building and Workshop at Canberra’, 19 July 1913, Commonwealth Record Series [CRS] A199, item FCW1915/963.
Minute, Director-General of Works to Assistant Electrical Engineer, ‘Electrical Store Building and Workshop at Canberra’, 19 July 1913, CRS A199, item FCW1915/963.
Minute, Director-General of Works to Secretary, Department of Home Affairs, ‘Electrical Store Building and Workshop’, 13 August 1913, CRS A199, item FCW1915/963.
H W Smith, note on file, 19 September 1913, CRS A199, item FCW1915/963.
H W Smith to Works Director, Victoria, minute, ‘Electrical Workshop’, 17 April 1914, CRS A199, item FCW1915/963.
Minute, Director-General of Works to Acting Secretary, ‘Re Supply of Electricity for Light and Power, in the Federal Territory’, 8 February 1916, CRS A1, item 1919/8647.
Memorandum, Clerk in Charge, Accounts Branch, to The Accountant, Department of Home Affairs, ‘Supply of Electricity for Lighting and Power in the Federal Territory’, 3 March 1916, CRS A1, item 1919/8647.
H W Smith, Assistant Engineer (Electrical), to The Engineer, Department of Home Affairs, ‘Electric Supply – Canberra’, 15 March 1916, CRS A1, item 1919/8647.
Minute, J.D. Brilliant, Works Superintendent, to Clerk in Charge, Accounts Branch, ‘Job 13, Buildings for Stores, Workshops, etc.’, 24 January 1917, CRS A361, item DSG/9999.
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Memorandum, Assistant Chief Engineer, FCC, to Executive Architect, ‘Maintenance Plumbers Workshop, Kingston’, 27 July 1928, CRS 86/1, item 189.
Memorandum, George A. Rittinger, Mechanical engineer, to Acting Chief Engineer, 8 October 1928, CRS A86/1, item 189.
Memorandum, W. Lancaster, Acting Accountant, to Chief Commissioner, FCC, 31 March 1930, CRS A6267, item F1930/79.
CRS A292, item C19705; ‘Future Development of the Kingston Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, p. 5, CRS A3032, item 28/8/1.
‘Kingston Stores Yard Area: Notes of a Conference held to consider the future development of the area’, 15 January 1941; and ‘Future Development of the Kingston Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, p. 5, CRS A3032, item 28/8/1.
‘Future Development of the Kingston Stores Yard: Notes on the second meeting of conference to discuss the future development of the Kingston Stores Yard area’, 14 October 1943, pp. 3-4, 5, CRS A3032, item 28/8/1; CRS A2445, item M7794B.
Extract from Minutes of the 38th Meeting of the National Capital Planning and Development Committee [NCPDC], 8-9 March 1944, CRS AA3032, item 22/1/1A.
Extract from Minutes of the 49th Meeting of the NCPDC, 13-14 May 1946, CRS AA3032, item 22/1/1A.
Extract from Minutes of the 50th Meeting of the NCPDC, June 1946, CRS AA3032, item 22/1/1A.
Additional extract of Minutes of the 50th Meeting of the NCPDC, June 1946, CRS A3032, item 22/1/1.
Extract of Minutes of the 51st Meeting of the NCPDC, 11-12 July 1946, CRS A3032, item 22/1/1.
Extract of Minutes of the 52nd Meeting of the NCPDC, 8-9 August 1946, CRS A3032, item 22/1/1.
Memorandum, C S Daley to H M Rolland, ‘Canberra Power House and Mechanical Workshop’, 19 August 1946, CRS A3032, item 22/1/1.
Drawing no. 17898, ‘Proposed Electrical Workshop Kingston Canberra’, 6 October 1948, CRS A3032, item 22/1/1A.
Drawings nos. 23200, 23201 and 23202, May 1955, CRS A3032, item 22/1/1A.
Extract from Minutes of the 145th Meeting of the NCPDC, 7-8 December 1955, CRS A3032, item 22/1/1A.
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CRS A2445, items M8995B and M9029C, 1956.
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APPENDIX A: EXISTING HERITAGE CITATION
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APPENDIX B: HISTORICAL DESCRIPTION OF KINGSTON INDUSTRIAL/ENGINEERING PRECINCT - 1928
The following description was prepared for a site visit associated with an Institution of Engineers Australia conference convened in 1928 by Colonel Percy Owen, Director General of Works and at the time President of the Institution.
DESCRIPTION OF THE MECHANICAL PLANT USED BY THE FEDERAL CAPITAL COMMISSION
The Factories and Repair Shops, which comprise a proportion of the Commission's Engineering activities, are grouped together in one area at the Railhead, Eastlake.
They comprise the Power House, Engineers' Shops, Electrical Fitters' Shop, Garage and Garage Repair Shop, Plant Yard, Cement Pipe Factory, General Store Yard, Saw Mill, Joiners' Shop; and in the same area is situated the Government Printing Office, and nearby the Hume Pipe Factory.
The Fitters' Shop consists of a reinforced concrete building, 132 feet long and 40 feet wide, containing 6 lathes, 3 drilling machines, 1 Universal milling machine, 1 Universal grinding machine, planing machine and shaping machine and the usual assortment of hacksaws, emery wheels, etc. Wings are extended on each side of the main building, one of which contains the Blacksmiths' Shop, with 6 forges with mechanical blowers, and 30 cwt. steam hammer, a small foundry and an acetylene welding plant, pattern makers and - wheelwrights' shop, and a motor repair shop of 5,000 sq. ft. area.
The other wing contains the Electrical Fitters' Shop of 5,300 sq ft. area containing lathe, drills, etc., and other small tools required by this section.
Towards the north is the Plant Yard, where the various road making machines are parked when not in actual use.
Adjoining the Plant Yard is the Cement Products Plant, where cement drain pipes from 4 in diameter to 21 in diameter are manufactured in Keilberg pipe-making machinery. Fence posts and other cement articles are manufactured in the same shop. Returning to the main yard we pass through the main stores to the Saw Mill. The Saw Mill consists of two 36 in circular saws and a docking saw and in an adjoining shed a 4-sided and 3-sided planing machine.
We next come to the Joiners' Shop, where all the joinery in connection with Parliament House and other buildings, has been carried out. The machinery includes 30 in. circular saw, docking saw, two 4- sided planers, 2 horizontal planers, a spindle moulder, morticing machine. a tenoning machine, band saw, spindle moulder, sand papering machine, etc. The machines are served by a sawdust extraction plant and the building is protected by the Grinell Sprinkler System. (Institution of Engineers, Australia 1928, p. 128)
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APPENDIX C: ADDITIONAL HISTORICAL INFORMATION
Figure 53. Engineers Workshop, Federal Territory, Canberra, 1915 Source: ACTEW
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Figure 54. Details of Reinforced Concrete Piers, 1915 Source: CRS A2445, item M297C, National Archives of Australia
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Figure 55. Details of Steel Trusses, 1915 Source: CRS A2445, item M296B, National Archives of Australia
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Figure 56. Joiners Shop Building at Power House, Canberra, 1922 Source: CRS A2562, item Ab277, National Archives of Australia
Figure 57. Proposed Extension to Smithy, 1924 Source: CRS A2562, item Ab261, National Archives of Australia
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Figure 58. Fitters’ Shop, Eastlake, Layout Showing Sanitary Accommodation, 1927 Source: CRS A2617, item Section 167/4314, National Archives of Australia
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Figure 59. Additional Lavatory Accommodation at Fitters Shop, Eastlake, 1944 Source: CRS A2617, item 167/14348, National Archives of Australia
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Figure 60. Plans for New Electrical Workshop, 1944 Source: CRS A2617, item Section 13/15228, NAA
Figure 61. Outline of Power Station, Fitters and Electrical Shop, 1946 Source: CRS A2445, item M7793C, National Archives of Australia
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Figure 62. New Layout for Welders’ Shop, 1947 Source: CRS A2445, item M8019B, NAA
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Figure 63. Plan for Mechanical Engineers’ Workshop Extension, 1949 Source: CRS A2617, item Section 171/18454, NAA
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Figure 64. Sections for Mechanical Engineers’ Workshop Extension, 1949 Source: CRS A2617, item Section 171/18455, NAA
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Figure 65. Kingston Stores Area, Canberra, New Locker Room at Fitters Shop, 1952 Source: CRS A2617, item 185/21578, National Archives of Australia
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Figure 66. Mechanical Fitters Shop, Kingston, ACT, Strengthening of Roof Trusses to Support Ceiling, 1956 Source: CRS A2445, item M9016C, National Archives of Australia
Figure 67. Proposed Heating Layout for Workshop, June 1956 Source: CRS A2445, item M8995B, NAA
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Figure 68. Plan showing Bulk Supply Store adjacent to Fitters’ Workshop, 2002 Source: ACTEW
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APPENDIX D: FRAMEWORK FOR ASSESSING HERITAGE SIGNIFICANCE
D.1 DEFINITION OF CULTURAL SIGNIFICANCE
For the purposes of this plan, the following definitions of cultural significance are used.
Cultural significance means aesthetic, historic, scientific, social or spiritual value for past, present or future generations. Cultural significance is embodied in the place itself, its fabric, setting, use, associations, meanings, records, related places and related objects. Places may have a range of values for different individuals or groups. (Australia ICOMOS 2000: Article 1.2)
D.2 ACT HERITAGE REGISTER CRITERIA
Under section 10 of the ACT Heritage Act 2004, a place or object has heritage significance if it satisfies one or more of the following criteria (emphasis added).
(a) It demonstrates a high degree of technical or creative achievement (or both), by showing qualities of innovation, discovery, invention or an exceptionally fine level of application of existing techniques or approaches
(b) It exhibits outstanding design or aesthetic qualities valued by the community or a cultural group
(c) It is important as evidence of a distinctive way of life, taste, tradition, religion, land use, custom, process, design or function that is no longer practised, is in danger of being lost or is of exceptional interest
(d) It is highly valued by the community or a cultural group for reasons of strong or special religious, spiritual, cultural, educational or social associations
(e) It is significant to the ACT because of its importance as part of local Aboriginal tradition
(f) It is a rare or unique example of its kind, or is rare or unique in its comparative intactness
(g) It is a notable example of a kind of place or object and demonstrates the main characteristics of that kind
(h) It has strong or special associations with a person, group, event, development or cultural phase in local or national history
(i) It is significant for understanding the evolution of natural landscapes, including significant geological features, landforms, biota or natural processes
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(j) It has provided, or is likely to provide, information that will contribute significantly to a wider understanding of the natural or cultural history of the ACT because of its use or potential use as a research site or object, teaching site or object, type locality or benchmark site
(k) The place exhibits unusual richness, diversity or significant transitions of flora, fauna or natural landscapes and their elements
(l) The place is a significant ecological community, habitat or locality for any of the following: (i) the life cycle of native species; (ii) rare, threatened or uncommon species; (iii) species at the limits of their natural range; or (iv) distinct occurrences of species.
D.3 HERCON CRITERIA
In April 2008 the national Environment Protection and Heritage Council decided to adopt a consistent set of criteria to identify and manage heritage across Australia. It was agreed that every opportunity should be taken to move towards greater consistency with the National Heritage Convention (also known as HERCON) model criteria. HERCON Criteria are as follows.
A. Importance to the course or pattern of our cultural or natural history.
B. Possession of uncommon rare or endangers aspects of our cultural or natural history.
C. Potential to yield information that will contribute to an understanding of our cultural or natural history.
D. Importance in demonstrating the principal characteristics of a class of cultural or natural places or environments.
E. Importance in exhibiting particular aesthetic characteristics.
F. Importance in demonstrating a high degree of creative or technical achievement at a particular period.
G. Strong or special association with a particular community or cultural group for social, cultural or spiritual reasons. This includes the significance of a place to Indigenous peoples as part of the continuing and developing cultural traditions.
H. Special association with the life or works of a person, or group of persons, of importance in our history.
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APPENDIX E: PRIORITY WORKS
The following list of proposed priority works has arisen from inspections undertaken during the project. The list may change according to circumstances, including new discoveries made in the course of undertaking the works. Policies in Section 8.3 relate to the implementation of the works.
Table 7. Priority Works
Feature Issue Proposed Works Priority
Cracks in • Possible corrosion of reinforcing • Seek expert advice High walls Cracks in • Ongoing damage to floor • Seek expert advice Medium floor Electrical • Prominent location • Consider relocation Low distribution boards on NE elevation Roughcast • Roughcast has been used on the • Change to smooth render Low on NE cornice/string course and elevation roundels Downpipes • Not accurately reconstructed • Consider accurate Low reconstruction
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APPENDIX F: GUIDANCE FOR ASSESSING PROPOSALS FOR CHANGE
Introduction
The Fitters’ Workshop is a relatively simple building with a largely featureless curtilage. None the less it has a range of heritage values, some of which are obvious while others are obscure. While there is a current project which may lead to substantial changes, change may also arise over time, especially small changes.
Accordingly, it is difficult to provide comprehensive guidance for assessing proposals.
These guidelines provide general guidance, and deal with: • key general principles for assessing proposals; and • a precautionary principle.
The purpose of such guidance should be to: • avoid damaging actions; • mitigate unavoidable damaging actions; • trigger more detailed evaluation in cases of uncertainty; and • trigger formal mechanisms under the ACT Heritage Act 2004 (eg. seek an approval).
It is important to note that the Workshop is protected under the ACT Heritage Act 2004, and penalties may apply for a breach of the Act.
Key General Principles for Assessing Proposals
The key general principles for assessing proposals are as follows.
• The heritage significance of the Fitters’ Workshop is the focus of protection and conservation. This significance is defined in the ACT Heritage Register citation and in this conservation management plan (Chapter 6, refer also to the defined attributes). If a proposed action will have, may have or is likely to affect the heritage significance or attributes of the Workshop then: • every effort should be made to avoid damaging actions; • if this is not possible, then every effort should be made to mitigate unavoidable damaging actions; and • if the heritage significance or defined attributes will be affected, then the formal obligations under the ACT Heritage Act 2004 should be followed.
• The conservation management plan should be a primary tool in assessing proposals.
• If a proposed action specifically accords with this conservation management plan, and the plan has been approved by the ACT Heritage Council, then further assessment of the proposal seems unnecessary. However, formal obligations under the ACT Heritage Act 2004 may still arise if the action affects heritage significance or the defined attributes.
• If the conservation management plan specifically precludes a proposed action then:
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• every effort should be made to avoid damaging actions; • if this is not possible, then every effort should be made to mitigate unavoidable damaging actions; and • if the heritage significance or defined attributes will be affected, then the formal obligations under the ACT Heritage Act 2004 should be followed.
• In the case of a major proposal not foreseen by the conservation management plan, then the plan should be revised and consider the proposal.
• The decision-making process outlined in the conservation management plan should be followed as part of the process to assess proposals. Strategy 7.1 states,
‘The process should involve: • consultation with internal and external stakeholders relevant to the particular decision; • an understanding of the original form and subsequent changes to the component involved; • documentation of the proposed use or operational requirements justifying the works or action; • an assessment of the impact on significance; and • identification of relevant statutory obligations and steps undertaken to ensure compliance.’
Precautionary Principle
Above all, if there is any doubt or uncertainty about the impact of a proposed action, then ideally the action should be abandoned. If this is not possible, then it should be subject to further detailed assessment.
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APPENDIX G: BURRA CHARTER
The Burra Charter
The Australia ICOMOS Charter for Places of Cultural Significance
Preamble Considering the International Charter for the Conservation and Restoration of Monuments and Sites (Venice 1964), and the Resolutions of the 5th General Assembly of the International Council on Monuments and Sites (ICOMOS) (Moscow 1978), the Burra Charter was adopted by Australia ICOMOS (the Australian National Committee of ICOMOS) on 19 August 1979 at Burra, South Australia. Revisions were adopted on 23 February 1981, 23 April 1988 and 26 November 1999.
The Burra Charter provides guidance for the conservation and management of places of cultural significance (cultural heritage places), and is based on the knowledge and experience of Australia ICOMOS members.
Conservation is an integral part of the management of places of cultural significance and is an ongoing responsibility.
Who is the Charter for? The Charter sets a standard of practice for those who provide advice, make decisions about, or undertake works to places of cultural significance, including owners, managers and custodians.
Using the Charter The Charter should be read as a whole. Many articles are interdependent. Articles in the Conservation Principles section are often further developed in the Conservation Processes and Conservation Practice sections. Headings have been included for ease of reading but do not form part of the Charter.
The Charter is self-contained, but aspects of its use and application are further explained in the following Australia ICOMOS documents: • Guidelines to the Burra Charter: Cultural Significance; • Guidelines to the Burra Charter: Conservation Policy; • Guidelines to the Burra Charter: Procedures for Undertaking Studies and Reports; • Code on the Ethics of Coexistence in Conserving Significant Places.
What places does the Charter apply to? The Charter can be applied to all types of places of cultural significance including natural, indigenous and historic places with cultural values.
The standards of other organisations may also be relevant. These include the Australian Natural Heritage Charter and the Draft Guidelines for the Protection, Management and Use of Aboriginal and Torres Strait Islander Cultural Heritage Places.
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Why conserve? Places of cultural significance enrich people's lives, often providing a deep and inspirational sense of connection to community and landscape, to the past and to lived experiences. They are historical records, that are important as tangible expressions of Australian identity and experience. Places of cultural significance reflect the diversity of our communities, telling us about who we are and the past that has formed us and the Australian landscape. They are irreplaceable and precious.
These places of cultural significance must be conserved for present and future generations.
The Burra Charter advocates a cautious approach to change: do as much as necessary to care for the place and to make it useable, but otherwise change it as little as possible so that its cultural significance is retained. ______
Articles Explanatory Notes Article 1. Definitions For the purposes of this Charter: 1.1 Place means site, area, land, landscape, building or The concept of place should be other work, group of buildings or other works, and may broadly interpreted. The elements described in Article 1.1 may include include components, contents, spaces and views. memorials, trees, gardens, parks, places of historical events, urban areas, towns, industrial places, archaeological sites and spiritual and religious places. 1.2 Cultural significance means aesthetic, historic, The term cultural significance is scientific, social or spiritual value for past, present or future synonymous with heritage significance and cultural heritage generations. value. Cultural significance is embodied in the place itself, its Cultural significance may change as a fabric, setting, use, associations, meanings, records, related result of the continuing history of the places and related objects. place. Places may have a range of values for different individuals or Understanding of cultural significance groups. may change as a result of new information. 1.3 Fabric means all the physical material of the place Fabric includes building interiors and including components, fixtures, contents, and objects. sub-surface remains, as well as excavated material. Fabric may define spaces and these may be important elements of the significance of the place. 1.4 Conservation means all the processes of looking after a place so as to retain its cultural significance. 1.5 Maintenance means the continuous protective care of The distinctions referred to, for the fabric and setting of a place, and is to be distinguished example in relation to roof gutters, from repair. Repair involves restoration or reconstruction. are: • maintenance — regular inspection and cleaning of gutters; • repair involving restoration — returning of dislodged gutters; • repair involving reconstruction — replacing decayed gutters. 1.6 Preservation means maintaining the fabric of a place It is recognised that all places and in its existing state and retarding deterioration. their components change over time at varying rates.
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Articles Explanatory Notes 1.7 Restoration means returning the existing fabric of a place to a known earlier state by removing accretions or by reassembling existing components without the introduction of new material. 1.8 Reconstruction means returning a place to a known New material may include recycled earlier state and is distinguished from restoration by the material salvaged from other places. This should not be to the detriment of introduction of new material into the fabric. any place of cultural significance. 1.9 Adaptation means modifying a place to suit the existing use or a proposed use. 1.10 Use means the functions of a place, as well as the activities and practices that may occur at the place. 1.11 Compatible use means a use which respects the cultural significance of a place. Such a use involves no, or minimal, impact on cultural significance. 1.12 Setting means the area around a place, which may include the visual catchment. 1.13 Related place means a place that contributes to the cultural significance of another place. 1.14 Related object means an object that contributes to the cultural significance of a place but is not at the place. 1.15 Associations mean the special connections that exist Associations may include social or between people and a place. spiritual values and cultural responsibilities for a place. 1.16 Meanings denote what a place signifies, indicates, Meanings generally relate to evokes or expresses. intangible aspects such as symbolic qualities and memories. 1.17 Interpretation means all the ways of presenting the Interpretation may be a combination cultural significance of a place. of the treatment of the fabric (e.g. maintenance, restoration, reconstruction); the use of and activities at the place; and the use of introduced explanatory material.
Conservation Principles Article 2. Conservation and management 2.1 Places of cultural significance should be conserved. 2.2 The aim of conservation is to retain the cultural significance of a place. 2.3 Conservation is an integral part of good management of places of cultural significance. 2.4 Places of cultural significance should be safeguarded and not put at risk or left in a vulnerable state. Article 3. Cautious approach 3.1 Conservation is based on a respect for the existing The traces of additions, alterations and fabric, use, associations and meanings. It requires a cautious earlier treatments to the fabric of a place are evidence of its history and approach of changing as much as necessary but as little as uses which may be part of its possible. significance. Conservation action should assist and not impede their understanding.
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Articles Explanatory Notes 3.2 Changes to a place should not distort the physical or other evidence it provides, nor be based on conjecture. Article 4. Knowledge, skills and techniques 4.1 Conservation should make use of all the knowledge, skills and disciplines which can contribute to the study and care of the place. 4.2 Traditional techniques and materials are preferred for The use of modern materials and the conservation of significant fabric. In some techniques must be supported by firm scientific evidence or by a body of circumstances modern techniques and materials which offer experience. substantial conservation benefits may be appropriate. Article 5. Values Conservation of places with natural 5.1 Conservation of a place should identify and take into significance is explained in the consideration all aspects of cultural and natural significance Australian Natural Heritage Charter. without unwarranted emphasis on any one value at the This Charter defines natural significance to mean the importance of expense of others. ecosystems, biological diversity and geodiversity for their existence value, or for present or future generations in terms of their scientific, social, aesthetic and life-support value. 5.2 Relative degrees of cultural significance may lead to A cautious approach is needed, as understanding of cultural significance different conservation actions at a place. may change. This article should not be used to justify actions which do not retain cultural significance. Article 6. Burra Charter Process 6.1 The cultural significance of a place and other issues The Burra Charter process, or affecting its future are best understood by a sequence of sequence of investigations, decisions and actions, is illustrated in the collecting and analysing information before making accompanying flowchart. decisions. Understanding cultural significance comes first, then development of policy and finally management of the place in accordance with the policy. 6.2 The policy for managing a place must be based on an understanding of its cultural significance. 6.3 Policy development should also include consideration of other factors affecting the future of a place such as the owner's needs, resources, external constraints and its physical condition. Article 7. Use 7.1 Where the use of a place is of cultural significance it should be retained.
7.2 A place should have a compatible use. The policy should identify a use or combination of uses or constraints on uses that retain the cultural significance of the place. New use of a place should involve minimal change, to significant fabric and use; should respect associations and meanings; and where appropriate should provide for continuation of practices which contribute to the cultural significance of the place.
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Articles Explanatory Notes Article 8. Setting Conservation requires the retention of an appropriate visual Aspects of the visual setting may setting and other relationships that contribute to the cultural include use, siting, bulk, form, scale, character, colour, texture and significance of the place. materials. New construction, demolition, intrusions or other changes Other relationships, such as historical which would adversely affect the setting or relationships are connections, may contribute to not appropriate. interpretation, appreciation, enjoyment or experience of the place. Article 9. Location 9.1 The physical location of a place is part of its cultural significance. A building, work or other component of a place should remain in its historical location. Relocation is generally unacceptable unless this is the sole practical means of ensuring its survival. 9.2 Some buildings, works or other components of places were designed to be readily removable or already have a history of relocation. Provided such buildings, works or other components do not have significant links with their present location, removal may be appropriate. 9.3 If any building, work or other component is moved, it should be moved to an appropriate location and given an appropriate use. Such action should not be to the detriment of any place of cultural significance. Article 10. Contents Contents, fixtures and objects which contribute to the cultural significance of a place should be retained at that place. Their removal is unacceptable unless it is: the sole means of ensuring their security and preservation; on a temporary basis for treatment or exhibition; for cultural reasons; for health and safety; or to protect the place. Such contents, fixtures and objects should be returned where circumstances permit and it is culturally appropriate. Article 11. Related places and objects The contribution which related places and related objects make to the cultural significance of the place should be retained. Article 12. Participation Conservation, interpretation and management of a place should provide for the participation of people for whom the place has special associations and meanings, or who have social, spiritual or other cultural responsibilities for the place. Article 13. Co-existence of cultural values Co-existence of cultural values should be recognised, For some places, conflicting cultural respected and encouraged, especially in cases where they values may affect policy development and management decisions. In this conflict. article, the term cultural values refers to those beliefs which are important to a cultural group, including but not limited to political, religious, spiritual and moral beliefs. This is broader than values associated with cultural significance.
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Articles Explanatory Notes Conservation Processes Article 14. Conservation processes Conservation may, according to circumstance, include the There may be circumstances where no processes of: retention or reintroduction of a use; retention of action is required to achieve conservation. associations and meanings; maintenance, preservation, restoration, reconstruction, adaptation and interpretation; and will commonly include a combination of more than one of these. Article 15. Change 15.1 Change may be necessary to retain cultural When change is being considered, a significance, but is undesirable where it reduces cultural range of options should be explored to seek the option which minimises the significance. The amount of change to a place should be reduction of cultural significance. guided by the cultural significance of the place and its appropriate interpretation. 15.2 Changes which reduce cultural significance should be Reversible changes should be reversible, and be reversed when circumstances permit. considered temporary. Non-reversible change should only be used as a last resort and should not prevent future conservation action. 15.3 Demolition of significant fabric of a place is generally not acceptable. However, in some cases minor demolition may be appropriate as part of conservation. Removed significant fabric should be reinstated when circumstances permit. 15.4 The contributions of all aspects of cultural significance of a place should be respected. If a place includes fabric, uses, associations or meanings of different periods, or different aspects of cultural significance, emphasising or interpreting one period or aspect at the expense of another can only be justified when what is left out, removed or diminished is of slight cultural significance and that which is emphasised or interpreted is of much greater cultural significance. Article 16. Maintenance Maintenance is fundamental to conservation and should be undertaken where fabric is of cultural significance and its maintenance is necessary to retain that cultural significance. Article 17. Preservation Preservation is appropriate where the existing fabric or its Preservation protects fabric without condition constitutes evidence of cultural significance, or obscuring the evidence of its construction and use. The process where insufficient evidence is available to allow other should always be applied: conservation processes to be carried out. • where the evidence of the fabric is of such significance that it should not be altered; • where insufficient investigation has been carried out to permit policy decisions to be taken in accord with Articles 26 to 28. New work (e.g. stabilisation) may be carried out in association with preservation when its purpose is the physical protection of the fabric and when it is consistent with Article 22.
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Articles Explanatory Notes Article 18. Restoration and reconstruction Restoration and reconstruction should reveal culturally significant aspects of the place. Article 19. Restoration Restoration is appropriate only if there is sufficient evidence of an earlier state of the fabric. Article 20. Reconstruction 20.1 Reconstruction is appropriate only where a place is incomplete through damage or alteration, and only where there is sufficient evidence to reproduce an earlier state of the fabric. In rare cases, reconstruction may also be appropriate as part of a use or practice that retains the cultural significance of the place. 20.2 Reconstruction should be identifiable on close inspection or through additional interpretation. Article 21. Adaptation 21.1 Adaptation is acceptable only where the adaptation has Adaptation may involve the introduction of new services, or a new minimal impact on the cultural significance of the place. use, or changes to safeguard the place. 21.2 Adaptation should involve minimal change to significant fabric, achieved only after considering alternatives. Article 22. New work 22.1 New work such as additions to the place may be New work may be sympathetic if its acceptable where it does not distort or obscure the cultural siting, bulk, form, scale, character, colour, texture and material are similar significance of the place, or detract from its interpretation to the existing fabric, but imitation and appreciation. should be avoided. 22.2 New work should be readily identifiable as such. Article 23. Conserving use Continuing, modifying or reinstating a significant use may be These may require changes to appropriate and preferred forms of conservation. significant fabric but they should be minimised. In some cases, continuing a significant use or practice may involve substantial new work. Article 24. Retaining associations and meanings 24.1 Significant associations between people and a place For many places associations will be should be respected, retained and not obscured. linked to use. Opportunities for the interpretation, commemoration and celebration of these associations should be investigated and implemented. 24.2 Significant meanings, including spiritual values, of a place should be respected. Opportunities for the continuation or revival of these meanings should be investigated and implemented. Article 25. Interpretation The cultural significance of many places is not readily apparent, and should be explained by interpretation. Interpretation should enhance understanding and enjoyment, and be culturally appropriate.
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Articles Explanatory Notes Conservation Practice Article 26. Applying the Burra Charter process 26.1 Work on a place should be preceded by studies to The results of studies should be up to date, regularly reviewed and revised understand the place which should include analysis of as necessary. physical, documentary, oral and other evidence, drawing on appropriate knowledge, skills and disciplines. 26.2 Written statements of cultural significance and policy Statements of significance and policy for the place should be prepared, justified and accompanied should be kept up to date by regular by supporting evidence. The statements of significance and review and revision as necessary. The management plan may deal with other policy should be incorporated into a management plan for the matters related to the management of place. the place. 26.3 Groups and individuals with associations with a place as well as those involved in its management should be provided with opportunities to contribute to and participate in understanding the cultural significance of the place. Where appropriate they should also have opportunities to participate in its conservation and management. Article 27. Managing change 27.1 The impact of proposed changes on the cultural significance of a place should be analysed with reference to the statement of significance and the policy for managing the place. It may be necessary to modify proposed changes following analysis to better retain cultural significance. 27.2 Existing fabric, use, associations and meanings should be adequately recorded before any changes are made to the place. Article 28. Disturbance of fabric 28.1 Disturbance of significant fabric for study, or to obtain evidence, should be minimised. Study of a place by any disturbance of the fabric, including archaeological excavation, should only be undertaken to provide data essential for decisions on the conservation of the place, or to obtain important evidence about to be lost or made inaccessible. 28.2 Investigation of a place which requires disturbance of the fabric, apart from that necessary to make decisions, may be appropriate provided that it is consistent with the policy for the place. Such investigation should be based on important research questions which have potential to substantially add to knowledge, which cannot be answered in other ways and which minimises disturbance of significant fabric. Article 29. Responsibility for decisions The organisations and individuals responsible for management decisions should be named and specific responsibility taken for each such decision.
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Articles Explanatory Notes Article 30. Direction, supervision and implementation Competent direction and supervision should be maintained at all stages, and any changes should be implemented by people with appropriate knowledge and skills. Article 31. Documenting evidence and decisions A log of new evidence and additional decisions should be kept. Article 32. Records 32.1 The records associated with the conservation of a place should be placed in a permanent archive and made publicly available, subject to requirements of security and privacy, and where this is culturally appropriate. 32.2 Records about the history of a place should be protected and made publicly available, subject to requirements of security and privacy, and where this is culturally appropriate. Article 33. Removed fabric Significant fabric which has been removed from a place including contents, fixtures and objects, should be catalogued, and protected in accordance with its cultural significance. Where possible and culturally appropriate, removed significant fabric including contents, fixtures and objects, should be kept at the place. Article 34. Resources Adequate resources should be provided for conservation. The best conservation often involves the least work and can be inexpensive. Words in italics are defined in Article 1.
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The Burra Charter Process Sequence of investigations, decisions and actions
IDENTIFY PLACE AND ASSOCIATIONS
Secure the place and make it safe
GATHER & RECORD INFORMATION ABOUT THE
PLACE SUFFICIENT TO UNDERSTAND SIGNIFICANCE Documentary Oral Physical
ASSESS SIGNIFICANCE
Understand Significance Understand ------PREPARE A STATEMENT OF SIGNIFICANCE
IDENTIFY OBLIGATIONS ARISING FROM SIGNIFICANCE
GATHER INFORMATION ABOUT OTHER FACTORS AFFECTING THE FUTURE OF THE PLACE
Owner/manager’s needs and resources External factors Physical condition
Develop Policy Develop DEVELOP POLICY Identify options Consider options and test their impact on significance ve Parts of it may need to be repeated Further research and consultation may be necessary be may consultation and research Further repeated be to need may it of Parts ve ------
PREPARE A STATEMENT OF POLICY
MANAGE PLACE IN ACCORDANCE WITH POLICY Develop strategies
Implement strategies through a management plan iterati is process whole The ------
Record place prior to any change Manage ------
MONITOR AND REVIEW
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